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58th Congress, \ HOUSE OF REPRESENTATIVES. f Document 

3d Session. / \ No. 245. 



PROMOTION OF TRADE INTERESTS. 



MESSAGE 



FROM 

THE PRESIDENT OF THE 
UNITED STATES 

TRANSMITTING 

LETTER OF ACTING SECRETARY OF 

STATE LOOMIS 

WITH REPORTS FROM DIPLOMATIC AND 

CONSULAR OFFICERS. 



January 19, 1905.— Message and accompanying- 
papers ordered printed and referred to 
Committee on Foreign Affairs. 



WASHINGTON: 

GOVERNMENT PRINTING OFFICE. 

1905. 






LC control Number 




G97 



MESSAGE FEOM THE PEESIDENT OF THE UNITED 

STATES. 

To the Senate and House of Representatives: 

. I transmit herewith a communication from the Acting Secretary 
of State, accompanied by reports from the diplomatic and consular 
officers, upon the feasibility of regular cooperation between the two 
branches of our foreign service for the better promotion of American 
industry and trade. Basing his conclusions upon the views ex- 
pressed in these reports, the Acting Secretary recommends that pro- 
vision be made for six special agents, with the diplomatic rank and 
title of commercial attache, to be sent abroad to make practical 
trial of the proposed plan; to report to the Department of State 
conditions existing in different countries which might suggest modi- 
fications or changes in the general scheme; to prepare, for the De- 
partment of Commerce and Labor, reports upon commerce and 
manufactures, or upon kindred topics, of a more exhaustive and 
comprehensive character than is ordinarily obtainable at present; 
and to visit consulates, examine their Avorkings, and suggest such 
changes, either to the consular officers or to the Department of State, 
as would tend to the general improvement and strengthening of the 
service. 

It is proposed that these agents shall be chosen primarih?" for their 
expert knowledge, but shall be not merely specialists, except for par- 
ticular investigations that might from time to time be required, but 
practical men of affairs, with the experience best suited to fit them 
for their executive duties. It is suggested that the consular service 
might supply the best type of agents desired, and that, for this 
reason, and also because of the incentive to merit which would thus 
be provided, appointments should be made preferably from among 
those consular officers who have demonstrated their special fitness and 
capacity. 

It will, in my opinion, be found upon examination that, while the 
measure proposed is a modest and more or less- tentative one, in- 
volving comparatively slight expense, it promises ^important and far- 
reaching consequences in the judicious strengthening of our whole 
foreign service in the interest of trade and the gradual development 
of capacities in it, but imperfectly available as yet, to make it fully 
adequate to the demands of our productive energy as a nation. 
Agriculture in the United States has long been dependent for its 
prosperity upon the demand from abroad for its surplus product, and 
of late years, our manufacturing industries have found that they 
were outstripping the capacity of even our enormous home market, 
and are now looking more and more to foreign consumption for relief 
from accumulating stocks. According to an estimate of the Depart- 



4 PKOMOTION OF TRADE INTERESTS. 

ment of Coimnerce and Labor, our exports of inanufactures in the 
calendar year 1904 '' will not only exceed the highest figures of any 
earlier year, but may probabty pass the $500,000,000 line, as against 
434 millions in the high-record year, the fiscal vear 1900, 151 mil- 
lions in 1890, 103 millions in 1880, 68 millions iii 1870, and 40 mil- 
lions in I860.'' The magnitude and steady growth of this export 
movement from our workshops and factories are such as to suggest 
the grave importance of providing it with all the official apparatus 
necessary to its full and free develojoment. 

It is generally admitted that, in recent years, the consular service, 
whatever may be its defects of system, has developed a commercial 
utility which has been of great practical value. It would be most 
regrettable, however, if this improvement, which has been brought 
about by the zeal and energy of individual consuls, rather than by 
the efforts of the service as a whole, and also, to a large extent, by the 
special direction of the Department of State, should be accepted as 
fully satisfying even present requirements, not to speak of the pros- 
pective demands of a rapidly expanding commerce. For this reason, 
I cordially commend to the consideration of the Congress the recom- 
mendations of the Acting Secretary of State, looking to the gradual 
sj^stematizing and equipment of the whole foreign service, by simple 
and inexpensive means, as an auxiliary responsive at all points to 
what may reasonably be expected of it by the great industrial and 
commercial interests which are so deeph^ concerned in enlarging their 
share of the world's trade. 

In view of the interest and importance of the subject to the public, 
and especiall}^ to the business community, I also suggest that authority 
be given for the printing of a special edition of 5.000 copies of the Act- 
ing Secretary's letter, together with the appended reports from diplo- 
matic and consular officers, of which 2,000 copies shall be for 
distribution by the Department of State. 

Theodore Roosevelt. 

White House, Washington, January 18, 1905, 

L. -..^ . ^ ' 



LETTEE FROM THE ACTING SECRETARY OF STATE. 

Department of State, 
Washington^ January 18, 1905. 

The President : I have the honor to submit for your consideration 
the advisability of action for combining utilities, more or less latent 
as yet in our diplomatic service, with those which have been so sig- 
nally demonstrated by the consular officers, for the promotion of 
American industry and trade. The development of official facilities 
for extending foreign commerce has long engaged the earnest effort 
of this Department, and improvements have been effected from time 
to time in the collection of trade intelligence from abroad and in the 
character of the services rendered by consuls to the business interests 
of the countr3\ which are now familiar to the public. The division 
of duties, which was effected by the transfer, July 1, 1903, of the w^ork 
of publishing and distributing the reports of consuls from the Depart- 
ment of State to the Department of Conmierce and Labor, leaving to 
the former Department, in cooperation with the latter, the general 
control and direction of the consular officers in the collection of com- 
mercial and industrial data, has naturally concentrated the energies 
of the Department of State upon the single object of raising to the 
highest point of efficiency the machinerj^ for supplying our manu- 
facturers and merchants with information as to conditions in other 
countries which tend to advance or to hinder the sale of our surplus 
products. 

In order that the Department of Commerce and Labor may fully 
justify the expectations which prompted its creation, by becoming the 
chief vehicle of information to the business public as to the latest 
d!evelopments in trade and industry, not only in our own country, but 
throughout the world, it has seemed to the Department of State that, 
being responsible for the efficiency of our foreign representatives, 
both consular and diplomatic, as instruments of trade expansion, and 
in view of its long experience in directing them to that end, it was 
incumbent upon it to take steps, not merely to meet the immediate 
needs of the new Department, but to anticipate, and as far as possible, 
provide for its developing re^juirements. 

The interdependence of the two Departments in the successful pros- 
ecution of the work assigned to them in common and the importance 
of liberal reciprocity of action between them are made clear by refer- 
ence to the legislation defining their respective duties in the premises. 
Section 11 of the act of February 14, 1903, reads: 

A person to be designated by the Secretary of State shall be appointed to 
formulate, under his direction, for the instruction of consular officers, the 
requests of the Secretary of Commerce and Labor; and to prepare from the 
dispatches of consular officers, for transmission to the Secretary of Commerce 
and Labor, such information as pertains to the work of the Department of Com- 
merce and Labor ; and such person shall have the rank and salary of a chief of 
bureau, and be furnished with such clerical assistants as may from time to time 
be authorized by law. 

5 



b PROMOTION OF TRADE INTERESTS. 

The final paragraph of the act approved March 3, 1903, making 
appropriations to supply deficiencies in the appropriations for the 
fiscal year ending June 30, 1903, etc., under the heading " Department 
of State," is in part as follows : 

To enable the Department of State to comply with the requirements of section 
11 of the act to establish the Department of Commerce and Labor, approved Feb- 
ruary 14, 1903 : Chief of Bureau, $2,250, etc. 

Under the authority conferred by the foregoing enactments, and 
after consultation with and assent of the Dej)artment of Commerce 
and Labor, a bureau, with the name " Bureau of Trade Kelations," 
was established in the Department of State, and this Bureau has, since 
the 1st of July, 1903, not only performed the duties prescribed by law, 
with the result that the collection and transmission of consular reports 
for the Department of Commerce and Labor have proceeded smoothly 
and expeditiously, but has endeavored in other ways to second the 
efforts of that Department to broaden the channels of coimnercial in- 
formation and to present it to the public with the utmost prompti- 
tude. The Bureau, in other words, has been made to interpret as 
fully as possible what was evidently the intent of Congress, viz, that 
while authority over consular officers was to be reserved to the Depart- 
ment of State, which is necessarily the only channel of communica- 
tion with the foreign governments to which consuls are accredited, 
this authority was to be exercised to the fullest extent, compatible 
with the maintenance of friendly relations with those governments, 
to meet the requirements, present and prospective, of the Department 
of Commerce and Labor. It was felt, moreover, that the perform- 
ance of the mere letter of the law was not sufficient to discharge the 
obligation of the Department of State to the business interests of the 
comitry, but that, guided by the experience of many years in pro- 
curing and publishing commercial and industrial data from abroad, 
it should so direct the consular corps and other sources of inform^ation 
as to make them fully responsive to the demands of our rapidly aug- 
menting industries. 

In pursuance of this object, steps were taken, immediately upon 
the transfer of the publication of consular reports to the Department 
of Commerce and Labor, to provide that Department with all com- 
mercial and industrial reports from diplomatic officers, as well as 
from consuls. There is no specific requiremen^t of law for this service,, 
section 11 of the act of February 11, 1903, providing only for the 
transmission of consular reports, but the Department of State had 
become so impressed, during the period of its control of the publica- 
tion as Avell as the collection of commercial data, with the value of 
contributions, even though but occasional, and usually voluntary, 
from embassies and legations, that it felt they should continue to be 
made promptly available for the business community. 

The possibly further uses of the diplomatic service on behalf of 
what promised to be the constantly broadening work of the Depart- 
ment of Commerce and Labor naturally presented themselves in the 
eonsideration of means to render the State Department's instru- 
mentalities as efficiently progressive and modern as possible. In re- 
cent years, the Department had noted so many instances of valuable 
service to our trade and industry by zealous heads of embassies and 
legations, or by the secretaries, that it seemed to it to be at least 



PROMOTION OF TRADE INTERESTS. i 

worth an inquiry as to whether such service might not be systema- 
tized and to some extent coordinated with similar work by the con- 
sular corps. A proposition of this sort, being in the nature, ap- 
parently, of an innovation, might, it was perceived, meet with objec- 
tion, on several grounds. Chief among these, it was anticipated, 
were : 

1. The danger of impairing the dignity and usefulness, in its or- 
dinary functions, of the diplomatic office, by identifying it too closely 
or too openly with commercial activities which might excite the 
jealous}^ of our trade rivals among the nations. 

2. The danger of conflict between the consular and diplomatic of- 
ficers, if their duties were confused, with the Dossible result of im- 
pairing the initiative and zeal of the individual consul, which have, 
admittedly, been of vcmoh. benefit to American industry. 

3. Additional expense to the Government, without guaranty of suf- 
ficient returns. ^ 

Having duly Aveighed these and other possible objections, the De- 
partment reached the conclusion that they were not sufficient to dis- 
courage further consideration, and in order that it might have the 
benefit of the views of those immediately concerned it instructed the 
diplomatic officers, under date of July 29, 1904, to report upon the 
subject, and in a circular of August 4 following, asked the consular 
officers for their opinions. The fact of the inquiry and its purpose 
Avere also communicated to the Secretary of Commerce and Labor, and 
it Avas stated that the reports in reply Avould doubtless provide the 
basis for the intelligent prosecution, in concert Avith his Department, 
of the object sought, should it be found to be feasible. 

Copies of the letter to the Secretary of Commerce and Labor, of his 
reply, and of the instruction to diplomatic officers and the circular to 
consuls Avill be found in an appendix to this report, prefacing the re- 
sponses to both instruction and circular. 

Li the instruction to diplomatic officers, the Department sought to 
make clear the fact that it Avas no part of its purpose to do more than 
raise the question Avhether the special advantages enjoyed by the em- 
bassies and legations, located as they are at the capitals of nations, 
and in close touch Avith all the official centers of information, might 
not be utilized to complement and make more accurate, as Avell as 
inore comprehensive, the admirable Avork on behalf of American com- 
merce and industry Avhich is being done by our consuls in nearly all 
the important trade regions of the world. Care Avas taken, it Avas 
thought, to avoid asking of the diplomatic officers the assumption of 
an}^ ncAv duties inconsistent Avith the proprieties of their positions, 
or indeed any duties essentially different from such as some of them 
are already' performing Avith great acceptability to the Department 
and Avith general^ recognized benefit to our business interests. The 
powers of initiative and independence of action of consular officers, 
within their proper bounds, AA^ere also, it Avas believed, fully safe- 
guarded. 

On these points, the instruction to embassies and legations reads: 

AVould it be practicable for you to transmit to the consular officers in the 
country to which you are accredited instructions from the Department of State, 
from time to time, for particular inquiries, noting in your dispatch of trans- 
mission any suggestions that may occur to you, from your sources of information 



8 PKOMOTIOIs" OF TEADE INTERESTS. 

at the capital, which would facilitate the inquiry or help to make it more com- 
prehensive or more exhaustive? 

If the consular officers should be directed to transmit their answers to such 
instructions through you, could you undertake to have their reports revised, 
with annotations indicating errors of fact or judgment, or portions to be elimi- 
nated as likely to give offense or to cause you embarrassment in your diplomatic 
capacity ? 

You will appreciate the fact that, to prevent friction with the consular corps 
and to preserve the spirit of initiative, which is one of the most valuable fea- 
tures, the Department must reserve the right to determine whether a report 
shall be amended or suppressed, in whole or in part, and that the annotations 
made by diplomatic officers are for its guidance in reaching a decision. The 
Department would always appreciate the fullest complementary information 
from an embassy or legation, whenever a report or a series of reports seemed 
to be defective or misleading. It is to be understood that the Department would 
continue to communicate directly with consular officers as to matters pertaining 
exclusively to their districts. 

The embassies and legations were also asked to state whether there 
was such cooperation as that outlined in the instruction between the 
diplomatic and consular services of the countries to which they were 
accredited, and whether those countries had any commercial or in- 
dustrial attaches. If they had such attaches, information as to their 
duties, diplomatic status, pay. etc., was requested; also an expression 
of opinion as to wdiether similar attaches would be useful for the 
United States. 

The replies to this instruction, together wdth the views of the consu- 
lar officers, are appended in order that, if it be deemed advisable to 
bring the matter to the attention of Congress, the considerations 
which suggest themselves to both branches of our foreign service may 
be given full expression. The reports have been arranged in geo- 
graphical groups, in the order of relative importance of the great 
trade divisions, so that a comprehensive view of the conditions in 
each may be obtained. 

As was to have been expected from so large a body of officials scat- 
tered all over the world and affected by widely differing conditions, 
a great variety of opinions and suggestions is presented, but it is 
encouraging to the Department's general purpose to be able to state 
that a spirit of zealous readiness to assist in devising a practical 
scheme of cooperation between the diplomatic and the consular 
branches animates most of them, including even some of those who 
urge the strongest objections to the particular methods proposed. Of 
the objections, some arise from purely local conditions, such as the 
absence of diplomatic representation in a colony or other depend- 
ency, or the lack of need for more than consular activity in countries 
of limited ai*ea or trade importance — conditions which would, of 
course, have regulated the Department's action in carrying out the 
details of a general plan. Objections of a graver character will, it is 
believed, be found to rest upon a broader construction of the Depart- 
ment's purpose than it meant to conve}^, or than, in fact, is expressed 
in the language of its instruction. 

These objections proceed mainly, on the one hand, from apprehen- 
sions lest the diplomatic service may be hampered in the discharge of 
its ordinary duties by being forced to give too much attention to 
details of trade and industry, which now devolve upon the consular 
officers; and on the other hand, from the mistaken idea that the 
activity of the consuls might be repressed or at least circumscribed 
by the arbitrary interference of diplomatic officers. Neither of these 



PEOMOTION OF TRADE INTERESTS. 9 

results is a necessary or even probable consequence of the plan as 
actually defined, but in order to remove all objections, the Depart- 
ment has decided to waive any prepossessions it may have had, and 
to confine its recommendation to what it finds to be the consensus of 
the best opinion among the diplomatic and consular officers them- 
selves. 

There are but few of the reports that do not concede the desir- 
ability of some expedient for strengthening and improving our 
official machinery for promoting trade. Many of them indorse the 
Department's proposals most strongly, and offer valuable suggestions 
for giving them full effect. In a number of instances, consular offi- 
cers themselves point out deficiencies in their own service and urge 
the importance of a better system of supervision and control. Those 
who oppose any material change base their arguments mainly on the 
very marked progress which the consular service has shown in recent 
years as an instrument of trade and the danger of making it worse 
in seeking to make it better. Leaving out of consideration the weak 
places revealed by the statements of their less optimistic colleagues, 
a sufficient answer to such objectors is found in the fact that, as has 
been pointed out by the Department in a number of reports upon the 
subject, the improvement has been largely fortuitous and the result 
of the native adaptability and energy of average Americans who 
happened to be chosen for consular positions rather than of concerted 
effort. Such direction as this improvement has had has come from 
the Department itself, which has always sought to encourage con- 
sular zeal and initiative, and would be the last to disparage their 
achievements. 

If, with such aid as the Department could give, the consular service 
has more or less casually evolved distinctive merits of its own, is it 
not reasonable to conclude that, with a system carefully devised with 
reference to its special capabilities and needs, and with the great 
advantage of diplomatic channels open to it. it could be made an 
instrument strong in all its parts and likely to be equal to any strain 
upon it from the growing demands of our industrial development ? 

Just seven years ago, in December, 189 T, the Department deter- 
mined upon a step not unlike the one now under consideration for the 
improvement of its service of commercial intelligence from abroad. 
Prior to that time, the Consular Keports had been published but once 
a month, except in cases of special exigency. It was decided that the 
public should be put in possession more promptly of the great variety 
of information of value to trade and industry contained in consular 
dispatches, and accordingly, in January, 1898, the publication of the 
report every da}^ except Sundays and legal holidays, was begun. 
The result was that the consular service was at once brought into 
close and frequent touch with the business world, and a strong im- 
pulse was given to consular zeal and effort. The consuls soon real- 
ized that they had been provided with a means of getting the results of 
their work before the public with the utmost promptitude and in the 
most practical form, and that their efforts Avere sure of speedy and 
generous recognition by the great business community whom it was 
their chief duty to serve. In order to give full effect to the change, 
official rules and routine in this particular branch of the Department 
machinery were relaxed or modified, so that the work might not be 
obstructed by formalities, indispensable elseAvhere, but involving, in 



10 PROMOTION OF TEADE INTERESTS. 

this instance, unnecessary delays. The effect of these improvements, 
slight in themselves, but regarded at the time in some quarters as 
radical and even hazardous innovations, was not onh^ to im-part a 
powerful stimulus to consular activity, as many consular officers 
have testified, but for the first time, to concentrate the public intelli- 
gence upon the consular body as a practical trade agency, and to im- 
press it with a sense of the usefulness of the service in various direc- 
tions, which more than compensated for the shortcomings frequently 
alleged against it. 

The action now contemplated by the Department is merely in the 
same direction of giving greater practicality to the energies of our 
foreign service. It has been preceded b}^ efforts to raise the general 
standard of personnel by means of increased care in making appoint- 
inents and in the promotion of individuals on the ground of merit. 
If, to these betterments, can be added judicious measures for combin- 
ing the special utilities of the two branches of the service — the diplo- 
matic and the consular — for the greater benefit of our material in- 
terests, it is believed that any cost to the Treasury, which need not be 
considerable, Avill be many times repaid, and that neither the diplo- 
matic nor the consular officers will have reason to complain of in- 
fringement upon their proper rights or functions, but that both will 
reap the benefit of added consequence as more efficient agents of their 
country's progress. 

The apprehensions expressed in some quarters that such action may 
be interpreted by foreign nations as contemplating an aggressive cam- 
paign for trade, and may consequently have the effect of intensifying 
the hostility already excited by our so-called " commercial invasion," 
of Europe especially, would scarcely seem to be entitled to much 
weight in view of the fact that the more advanced industrial coun- 
tries have for some time been openlj^ equipping themselves for pre- 
cisely such effort, and as the governments of some of them are in 
the forefront of this movement, employing diplomatic as well as con- 
sular agencies in direct and often detailed action on behalf of trade 
interests, it is not to be supposed that serious objection would be made 
to or ill feeling aroused by similar activity on our part. 

In order, hoAvever, to provide against even so unlikely a contin- 
gency, and also to give full weight to the various considerations 
urged by the diplomatic and consular officers in their replies to the 
Department's interrogatories, I have the honor to propose that the 
Congress be asked to authorize the trial of a plan which, it is be- 
lieved, will reconcile the Department's general object with all the 
recommendatif)ns of practical importance from both branches of the 
service, and at the same time, avoid the possible complications upon 
which some of the representatives of each branch lay particular stress. 

As has been indicated, there is a consensus of opinion among 
those who have correctly interpreted the Department's instruction of 
July 29 as to the need of concentration and intelligent direction of 
effort upon the part of all our officials abroad who are capable in any 
Avay of contributing to our general equipment as an exporting nation 
in trade knowledge and in the tools and appliances for making the 
best use of it. They differ only as to the means and methods to be 
employed. The Department deems it but proper to defer, in this 
particular, to the judgment of men whose actual experience in the 
work gives them a special right to consideration; but as there is no 



PROMOTION OF TEADE INTERESTS. 11 

general agreement among them upon a definite line of action, it is 
obviously necessary to endeavor first to harmonize their differences, 
and by consultation and comparison of views, to work out a practical 
scheme. This might be accomplished, it is true, by the Department 
itself, acting on its best judgment, after careful review of all the 
facts set forth in the answers to its interrogatories; but it is believed 
that a solution of the problem much more satisfactory to the whole 
consular and diplomatic body, to the Congress, and to the country 
would be found if the plan to be finally pursued were the result of 
special inquiry and experiment by a staff of capable agents, acting 
for the Department of State, and through it, for the Department of 
Commerce and Labor, in personal contact and association with the 
diplomatic and consular officers in the more important trade regions. 

It will be observed that, in inany of the answers to the Department's 
instruction, the creation of a staff of commercial experts is strongly 
urged, either as adjuncts of the diplomatic or the consular corps, or 
as intermediaries between them. In the opinion of the Department, 
they would be most useful as intermediaries. As such, they could be 
given the rank of attaches to embassies or legations, with facilities 
of access to official and other sources of information which are to be 
enjoyed only by persons having diplomatic status. Their duties, how- 
ever, being declaredly commercial, and only such as are already exer- 
cised by diplomatic officers of other Governments, they would in no 
AY ay compromise the embassy or the legation in the exercise of its 
special functions. With the benefit of free access to all the executive 
departments of a government, and with the support and cooperation 
of the embassy or legation, such an official would occupy a position of 
peculiar vantage, Avhich should enable him to extract all that is 
valuable to his country's industries and commerce from the opportuni- 
ties which, the Department believes, exist in the diplomatic service, 
but which now^ necessarily lie more or less fallow. 

The usefulness of such an agent would not be so great, however, 
in his diplomatic capacity, or even in making comprehensive reports 
upon commercial and industrial subjects, as in the service he could 
render by means of personal association with consuls and actual 
experience of their work. The observation of conditions on the 
spot by a competent and reliable representative could not fail to be 
of the utmost value to the Department in adjusting its action to the 
requirements not onJy of particular cases, but of the service as a 
whole. His assistance and advice, based, as it Avould be, upon excep-. 
tional sources of information, might be expected to greatly facili- 
tate the work of a consular officer in many instances, ^nd in course 
of time, he would, in all probability, be able to contribute his full 
share toward the working out of a system of efficient cooperation 
between the tAvo branches of the service which Avould have intelli- 
gent regard for the proper interests of both. In the meantime, 
being, it is assumed, primarily a commercial expert, he Avould also 
be employed in supplying for the Department of Commerce and 
Labor information of a character, for comprehensiveness and accu- 
racy, not to be expected of either consular or diplomatic officers who 
lack the special equipment for such work. 

There are a number of consular officers, hoAvever, who may be 
classed as " commercial experts," as is demonstrated by the charac- 
ter of their reports, and, other things being equal, it would be of 



12 PROMOTION OF TRADE INTERESTS. 

gxeat benefit if tlie proposed new officers conld be chosen, preferably, 
from among them. It may, doubtless, be advisable to select special- 
ists for temporarj^ purposes, as, for example, to re^^ort upon a par- 
ticular industry or a passing phase of trade conditions, but for the 
general purposes of trade promotion and the strengthening of our 
commercial representation abroad, the men best suited would seem 
to be those who have demonstrated their capacity and energy in the 
actual work of the consular corps. There is another reason, and, as 
it seems to the Departjnent, a very strong one, for giving consuls the 
preference in making these appointments in the encouragement and 
incentive it would offer to the whole service for the most strenuous 
effort. 

A capable consular officer, rewarded Avith the post of commercial 
attache, would be a living example and object of emulation for every 
aspiring man in the service; and to no other type of official, prob- 
ably, could consular officers look with the same confidence for encour- 
agement and help as to one who had been chosen for merit from 
among themselves. To none, it may be assumed, would they submit 
their own opinions so cheerfully or the business of their offices for 
inspection with a greater degree of assurance that full justice would 
be done them. As a graduate, so to speak, of the consular corps, andv 
therefore in sympathy with his former associates, but officially inde- 
pendent of them, a commercial attache charged with such duty 
could be depended upon to hold the scales even between the indi- 
vidual and the Government, and with his consular experience to 
guide him, to reach conclusions fair to all interests and of practical 
and permanent value to the public service. 

A well-defined and stable system of consular inspection is the sim- 
plest and surest means of maintaining the proper standard of con- 
sular morale and efficiency, which has been so often sought in 
propositions to Congress for legislation, based, in some instances, 
upon alleged defects that have been remedied, or upon considerations 
of an academic or social character that commended themselves, at 
one time, to several of the European nations, but are now regarded 
either as obsolete or subsidiary to other requirements developed by 
modern trade competition. Such a system of well-ordered super- 
vision would probably be most welcome to the consular service, con- 
sisting as it does, in the main, of a body of typical Americans, with 
those instincts of zeal for their country and earnest desire to advance 
its interests which are so strikingly characteristic of our people. 

Consular inspection, hitherto, has been of an occasional and neces- 
sarily partial character, owing to the fact that it could be undertaken 
only by special provision of Congress. The reports which have 
resulted from such iiispection have undoubtedly been of value for both 
legislative and administrative purposes, but a steady, unrelaxing, and 
thoroughly Avell-informed supervision, such as has been indicated, 
is the only sure means of protecting the interests of the Govermnent, 
of preventing lapses and abuses, of developing the full capacities of 
the service, and of securing to individuals the proper measure of 
their deserts. Xo consular officer fit for his position need fear such 
scrutiny, and all would feel that they had solid ground for encour- 
agement to do their best. 

The considerations which have thus been drawn from the reports 
of diplomatic and consular officers, herewith presented, seem to the 



PROMOTION OF TRADE INTERESTS. IB 

Department to warrant a reconmiendation to Congress for the crea- 
tion of a staff of special agents, with the diplomatic rank and title 
of commercial attache, as provided in the tentative draft of para- 
graphs to be inserted in the diplomatic and consular appropriation 
bill, which I have the honor to submit (inclosure) . It will be observed 
that the number of proposed commercial attaches is limited to six. 
At first, and for some time to come, the scheme must be regarded 
as more or less experimental, and it is believed that six attaches will 
be sufficient to test its value. A smaller number would be inade- 
quate to cover the ground which it is desirable to occupy, if a fairly 
comprehensive trial is to be made. Under the terms of the proposed 
legislation, the six attaches, to be appointed by the President, pref- 
erably from the consular staff, are to be assignable at the discretion 
of the Secretary of State. Of the six, it is proposed that five shall 
be distributed so as to cover the following trade divisions: 

1. Austria-Hungary, the Balkan States, Germany, Switzerland, 
Russia, and other countries of northern Europe. 

2. France, Italy, Portugal. Spain, and other countries bordering 
on the Mediterranean. 

3. Great Britain and dependencies. 

■i. Mexico, Central America, the West Indies, South America. 

5. Asia — more particularly Asiatic Russia. China, and Japan. 

6. At large — i. e.. one attache to be held in reserA^e, either for spe- 
cial service in the Department of State, as occasion may require for 
advisory or other purposes, or for particular missions to any part 
of the world. 

It is not proposed that any of the attaches should have a fixed resi- 
dence at a i^articular capital, but that they shall be transferable from 
point to point as circumstances dictate. Their tenure should obvi- 
ously be secure, so long as they fulfill their duties satisfactorily, if we 
are to offer sufficient i-nducements to really capable men to make such 
a service what it ought to be — a career. For the same reason, and 
because of the exceptional qualifications demanded, a salary of $5,000, 
with adequate allowance for traveling expenses, is believed to be the 
least that could properh^ be offered. The total cost of such an estab- 
lishment, wJiich is placed at $50,000 per annum, is insignificant com- 
pared with the results which, it is confidently expected, would soon 
begin to appear in the character of the information which the 
Department of Commerce and Labor would be able to furnish to 
manufacturers and exporters, and in the greater u.tility to our trade 
interests of the combined energies of -the diplomatic and consular 
officers intelligently directed to a common end. 

If the importance of the proposed action is not sufficiently appar- 
ent from Avhat has been said, it ought to be obvious when considered 
as a step in the direction of providing the United States with the 
official machinery which, sooner or later, will be imperatively 
demanded by our congested industries to aid them in finding outlets 
for their surplus products. As was pointed out in the Annual Review 
of the World's Commerce issued b}^ this Department as long ago as 
April, 1898, and reiterated in the same publication by the Depart- 
ment of Commerce and Labor for the calendar year 1903, the pro- 
ductive capacity of American workshops and factories is increasing 
at such a rate that, to keep pace with it, we must obtain a commen- 
surate share of foreign consumption. " Foreign markets," we are 



14 PROMOTION OF TRADE INTERESTS. 

told in the Keview for 1903, " are as necessary (to this) as the home 
markets were ten or fifteen years ago. In some lines our production 
in six or eight months is sufficient to cover the home demand of a 
year. The production of the other four months must be marketed 
outside the United States. Xor will it do to go into the foreign mar- 
kets with any less zeal and effort than is used to secure home markets. 
In fact, a much greater effort may be needed in the one than in the 
other.'' 

Whatever form such effort on the part of our business interests may 
take, it must be evident that it can be greatly facilitated by the most 
efficient representation by government agencies in the countries to 
which we wish to sell our surplus products. It is neither practicable 
nor desirable for the' representatives of the Government in foreign 
countries to attempt to make trade. The actual business must always 
be left to the individual energy and tact of those engaged in it ; but 
unlike the home market, the foreign market presents peculiar con- 
ditions, often fluctuating, as to whicKthe American exporter has, in 
most instances, no reliable means of information except the reports 
of diplomatic and consular officers. It is but just to the consular 
service to say that, upon the whole, it has kept well abreast of, and not 
infrequently has been in advance of the demand for such information : 
but as our productive energy increases and the necessity for seeking 
foreign markets becomes more stringent, it is to be expected that the 
requirements of the business community for reliable, well- digested, 
and practical details as to trade conditions abroad, and for advice 
and help in exploring unknown markets, will tax the best official 
machinery that can be devised. It would seem to be but the part of 
ordinary prvidence not to Avait for the emergency, but to set to work 
at once to perfect such machinery while there is still time for experi- 
ment and trial. 

Respectfully submitted. 

Francis B. Loomis, Acting Secretary. 



Draft of paragraphs proposed for insertion in the act making appropriations for 
the diplomatic and consular service for the fiscal year ending June 30, 1906. 

SALARIES OF COMMERCIAL ATTACHES OF EMBASSIES AND LEGATIONS. 

For six special ageiits of tlie Department of State, with the diplomatic rank 
and title of commercial attache, to be appointed by the President, preferably 
from the consular service, and to be assigned, subject to transfer, at the discre- 
tion of the Secretary of State, to embassies and legations, or to particular trade 
regions or to such occasional service in the Department of State, as may be 
deemed advisable by the Secretary of State, who shall make regulations pre- 
scribing their duties, which shall include inspection of consulates, and shall 
require such cooperation by diplomatic and consular officers as may be necessary 
and judicious, at $5,000 each, $30,000. 

For necessary traveling expenses and cost of clerk hire, books of reference and 
periodicals, stationery, typewriting machines, telegrams, etc., for official ^pur- 
poses of such commercial attaches. $20,000. 

Total, $50,000. 



APPENDIX. 



REPORTS 

OF 

DIPLOMATIC AND CONSULAR OFFICERS 

ON 

PROMOTION OF TRADE INTERESTS. 



15 



INSTRUCTION TO DIPLOMATIC OFFICERS. 

[Circuiar.] 

Promotion of Trade Interests. 

Department of State, 

Washington^ July 29^ lOOJf. 
To the Diplomatic Ofjicers of the United States: 

Gentlemen : I have to request that you will cause to be prepared 
at your earliest convenience for the information of the Department a 
memorandum upon the capabilities of the diplomatic service for the 
promotion of our trade interests in the country or countries to which 
you are respectively accredited. The Department is prompted in 
making this inquiry by two considerations which have been impressed 
upon it in the course of years in the collection of commercial and 
industrial data for publication in the Consular Reports. 

The first of these considerations is that our embassies and legations, 
as shown by their frequent efforts to assist the spread of trade in- 
telligence among our people, would seem to need only a definite plan 
of action and proper instruments to become powerful auxiliaries in 
tJie great and constantly growing work of equipping our manufac- 
turers and exporters for effective competition in the world's com- 
merce. 

The second consideration is the limitation upon the consular 
service in its lack of diplomatic status in obtaining official informa- 
tion at first hand. Such information can be secured by a consular 
officer only through the cooperation of our diplomatic agents or by 
courtesy of an official of the country in which he is located. More- 
over, a consul-general in the capital city of a country may be, and 
usually is, a local officer, whose jurisdiction and influence do not ex- 
tend beyond a particular district. It has sometimes happened that, 
when the Department has sought to obtain through the consular 
officers a group of comprehensive reports upon some subject of gen- 
eral interest and importance, serious omissons have occurred from the 
inability of those officers to reach the center of official information — 
i. e., the ministerial department of a government specially charged 
with the matter. Fortunately, in most instances, this difficulty is over- 
come by the assistance rendered to the consuls by our diplomatic 
representatives or by the good offices of some bureau of a govern- 
ment with which a consul may have established friendly relations. 

It will be apparent to you, however, that if the United States is 
to gain and hold its proper place among the industrially competing 
nations in the world's markets nothing should be left to such chances, 

H. Doc. 245, 58-3 2 IT 



18 PROMOTION OF TRADE INTERESTS. 

but that the machinery for collecting information as to business con- 
ditions in other countries should be made as efficient and as safely 
automatic as the means will allow. As you are aware, the consular 
service has made a general and very marked advance in its utility 
in this direction in recent years, so much so, in fact, as to have be- 
come the object of imitation and emulation on the part of the more 
prominent industrial nations; and it is believed that, if the diplo- 
matic service could be brought into closer and more active coopera- 
tion with it, the United States would possess an instrument of trade 
expansion which it would be difficult to rival. 

In view of the fact that the extension of commerce, in its many 
forms, with a multitude of subsidiary interests, has admittedly be- 
come one of the chief aims of world diplomacy, and the further 
fact that some nations already have diplomatic representatives, 
known as " commercial ataches,'' charged with the special duty of 
collecting industrial and trade information, it is assumed that no 
serious question of propriety could arise from the assumption by 
an embassy or legation of the functions which have been indicated 
as a part of its regular dtities. 

Your opinion is therefore requested on the following points : 

1. Would it be practicable for you to transmit to consular officers 
in the countr}^ to which you are accredited instructions from the 
Department of State, from time to tune, .for particular inquiries; 
noting in your dispatch of transmission any suggestions that may 
occur to you, from your sources of information at the capital, which 
would facilitate the inquir}" or help to make it more comprehensive 
or more exhaustive? 

If the consular officers should be directed to transmit their answers 
to such instructions through you, could you undertake to have their 
reports revised, with annotations indicating errors of fact or judg- 
ment, or portions to be eliminated as likely to give offense or to cause 
you embarrassment in your diplomatic capacity ? 

You will appreciate the fact that, to prevent friction with the 
consular corps and to preserve the spirit of initiative, which is one 
of its most valuable features, the Department must reserve the right 
to determine whether a report shall be amended or suppressed, in 
whole or in part, and that the annotations made b}^ diplomatic officers 
are for its guidance in reaching a decision. The Dei^artment would 
always appreciate the fullest complementary information from an 
embassy or legation, whenever a report or series of reports seemed 
to be defective or misleading. It is to be understood that the 
Department would continue to communicate directly with consular 
officers as to matters pertaining exclusively to their districts. 

2. Is there such cooperation as that outlined above between the 
diplomatic and consular services of the country to which you are 
accredited? If so, describe it as fully as you can. Has the Gov- 
ernment any commercial or industrial attaches? If so, define their 
duties, diplomatic status, pay, etc. Would such attaches, in votir 
judgment, be useful for the United States? 

3. What additional assistance, if any, would be needed to enable 
you to carry into effect the programme described under question 1 ? 

Any suggestions that may seem, from your consideration of the 
foregoing, to be likeh^ to further the object sought — viz. the coordi- 



PROMOTION OF TRADE INTERESTS. . 19 

nation and improvement of existing facilities for the collection of 
commercial intelligence, with the possible result of legislation by 
Congress, to make them still more efficient — would be welcomed by 
the Department. 

The principal consular officers will be furnished with a copy of 
this instruction for an expression of their views upon the subject. 
I am, gentlemen, jour obedient servant, 

Francis B. Loomis, 

Acting Seretary. 



CIRCULAR TO CONSULAR OFFICERS. 

[Circular.] 

Promotion of Trade Interests. 

Department of State, 

Washington^ August Jj.^ 190Jf.. 
To the American Consular Officers. 

Gentle^uen : I inclose, for your information, a copy of a circular 
to the American diplomatic officers in regard to a plan for the coor- 
dination and improvejnent of existing facilities for the collection of 
commercial intelligence and the promotion of American trade inter- 
ests abroad. 

The Department desires an expression of j^our views upon the 
subject as early as practicable. 

I am, gentlemen, 3^our obedient servant, 

Alvey a. Adee, 
Acting Secretary. 



letter to secretary of commerce and labor. 

Department of State, 

^Y ashing ton .^ August 1, 1901^.. 
Sir: I inclose herewith copy of an instruction to our diplomatic 
officers, calling for an expression of their views as to the practica- 
bility^ of a systematic cooperation on their part with the consular offi- 
cers in collecting commercial and industrial information for publi- 
cation in the Consular Reports. It is believed that such cooperation 
on the lines indicated in the instruction might result in greatly 
strengthening and improving our facilities for supplying fresh and 
reliable data as to trade conditions and industrial progress in for- 
eign countries to our manufacturers and exporters, and thus promote 
the sale of American goods abroad. Eeplies to this instruction will 
doubtless provide the basis for an intelligent prosecution of the plan, 
in concert with your Department, should it be found to be feasible. 
I have the honor to be, sir, your obedient servant, 

Francis B. Loomis, 

Acting Secretary. 
The Secretary of Commerce and Labor. 

Inclosure. 



20 PROMOTlOi^ OF TRADE INTERESTS. 

REPLY OF SECRETARY OF COMMERCE AND LABOR. 

Department of Commerce and Labor, 

Office of the Secretary, 
Washington^ August 2^ 190If. 
Sir : I have the honor to acknowledge the receipt of your letter of 
the 1st instant, inclosing a copj^ of a circular letter issued to our dip- 
lomatic officers calling for an expression of the views as to the prac- 
ticability of systematic cooperation on their part with the consular 
officers in collecting commercial and industrial information for publi- 
cation in the Consular Reports. 

Your letter and inclosure will be forwarded to the Bureau of Sta- 
tistics for its information. 

Respectfully, V. H. JVIetcalf, 

Secretary. 
The Secretary of State. 



REPORTS OF DIPLOMATIC AND CONSULAR OFFICERS BY 
GRAND TRADE DIVISIONS AND COUNTRIES. 



EUROPE. 
AUSTRIA-HUNGARY. 

Rejyort from the Embassy. 

American Embassy, 

Vienna., September 9. lOOIf. 

The embassy is of the opinion that, in many cases where the De- 
partment desires particular inform.ation, it would be entirely practi- 
cable for it to transmit to the consular officers within its jurisdiction 
the Department's instructions, noting in the dispatch of transmission 
such suggestions as, from our sources of information at the seat of 
government, would materially expedite the inquir}^ desired and help 
to make it more comprehensive. Should such a course, however, be 
adopted as the invariable rule, it is easily possible to conceive of cases 
in which the embassy's intervention might lead to unwarrantable 
delay. 

Eegarding the second paragraph of the Department's question, I 
do not see how the embassy could undertake to revise the reports of 
consular officers in reply to such instructions as above indicated, if 
transmitted through the mission, without practically making a sepa- 
rate report of its own, w^hich would naturally entail much delay — 
that is, so far as regards errors of fact. As regards errors of judg- 
ment, in cases where reports come from consular officers at a distance 
from the seat of the mission, it seems safe to assume that the official 
making the report and being on the spot is better qualified than the 
embassy to express an opinion. In the rare cases where portions of 
reports would cause embarrassment to the embassy or give offense 
here, it could wxll be indicated that such was the opinion of the 
mission. 

Such cooperation as that above outlined does not exist between the 
diplomatic and consular services of Austria-Hungary. That is to 
say, all consular reports are transmitted through their diplomatic 
representatives; but I am informed by the second chief of section at 
the foreign office such a course is largely formal, and only in special 
cases Avhere the mission happens to be fully acquainted with the sub- 
ject in hand is any revision ever made. 

The Austro-Hungarian Government has no commercial or indus- 
trial attaches. To supply this want, however, they have stationed in 
most of the large capitals of Europe experts appointed by the depart- 
ments of commerce and agriculture. These experts have no diplo- 

21 



^2 PROMOTION OF TRADE INTERESTS. 

matic or consular rank and are in no way subordinate to either branch 
of the service. They are usually, upon their arrival at a new post, in- 
troduced by their diplomatic representatives to the various depart- 
ments of the government, viz, the ministries of commerce, agriculture, 
and interior, but have no further connection with the mission. All 
their instructions are sent to them direct from the ministry by which 
they have been appointed — never through the foreign office — and their 
reports are made in the same way. The}^ do not confine themselves 
to the capitals of the countries where they are stationed, but travel, 
and by personal observation keep themselves thoroughly informed 
of the general commercial and industrial conditions prevailing 
throughout their sphere of action. 

The English comjnercial attache is the only one at Vienna. He 
has the diplc^Batic rank of second secretary of embassy and is 
accredited also to Rome, Athens, and throughout the Balkans, though 
he spends mosv of his time here. He was, upon his arrival in 
Vienna, officially introduced by the British ambassador in person 
at the several ministries, and is in a position to obtain expeditiously 
full and reliable information. His salary is £1,000 per annum. In 
a general way it is his duty to draft all notes to the foreign office 
and dispatches to his home government dealing with politico- 
commercial matters as well as the making of special reports. The 
British Government has such representatives also in Berlin, Paris, 
and St. Petersburg. They are appointed by their foreign office, and 
usually are young men wdio have been in the consular service and 
have shown signs of marked ability. 

Such a man w^ould, in my opinion, be needed to enable the embassy 
to thoroughly carry into effect the programme described under your 
question 1, but whether the possibilities of our trade expansion in 
Austria-Hungary would warrant such an appointment seems prob- 
lematic. 

Chandler Hale, 
Charge d^Af aires ad Interim. 



Ofmions of Consular Officers. 

BUDAPEST. 

American Consulate-General, 

Budapest^ September 12^ 1901^.. 

From Hungary's point of view any more supervision by the dip- 
lomatic officers of the Hungaro- Austrian monarchy of the Hungaro- 
Austrian consuls' reports than the simultaneous receipt by them of 
copies of all communications of political importance made to the 
foreign office in Vienna is groundless and vexatious to all concerned. 

The ordinance No. 28T3/H, of March 1, 1868, issued by the Hun- 
garo- Austrian minister of foreign affairs to the consuls of the mon- 
archy directed the transmission of consular reports as follows : 

(a) The yearl}^ reports shall be sent at the end of March through 
the consulate-general and the diplomatic mission. 

(&) The periodic weekly and monthly reports of consuls in 
Europe and the quarterly reports of consuls in the other continents 



PROMOTION OF TRADP: INTERESTS. 23 

of the globe shall be sent direct to the ministry of foreign affairs 
in Vienna. 

(c) The special urgent reports made by all consuls shall be sent 
direct to the respective ministers of conunerce in Budapest and 
Vienna. 

(d) The requested reports awaitecl by either of the two ministers 
of commerce shall be sent direct to the requesting minister, but a 
copv shall be sent simultaneously to the diplomatic mission. 

In 1886 (No. 24,707/10, of April 30) another ordinance of the 
minister of foreign affairs instructed the consuls to reply direct to all 
requests for repoi;ts made by either of the two ministries of com- 
merce; and in the printed instructions as to the rendering of con- 
sular reports issued in 1895 (sections 10, 32) no mention is made of 
the obligation to send a copy of the yearly and requested reports to 
the diplomatic mission. Consular officers may also telegraph direct 
to the two ministers of commerce urgent openings for goods, etc. 

The particular attention of Austrian business circles has been 
drawn to the result of the written agreement between the Hungarian 
and Austrian ministries, signed by ex-Prime Ministers Banffy and 
Badeni in 1898 (incorporated in Article X of the proposed new cus- 
toms and commercial convention between Hungary and Austria, 
which still awaits passage by the two Parliaments). By the said 
agreement Hungary and Austria arranged for autonomous Hun- 
garian and Austrian commercial and agricultural commissioners to 
reside in foreign countries and to be reported to the foreign govern- 
ments, but not accredited and attached as diplomatic or consular 
officials. Until 1898 the consular reports found their way to public 
notice quicker in Vienna than in Budapest; but the Hungarian 
ministers of commerce have lately, in concrete cases, effected a reform 
in the transmission and publication b}^ which Hungary now publishes 
such reports quite as promply as Austria. 

In consequence of the foregoing state of things in Hungary, which 
is a rival of America both industrially and agriculturally, and has 
just established closer commercial navigatory relations with the 
United States of America, the gain won by raising the American con- 
sulate at Budapest to a consulate-general will immediately be lost by 
putting it under the embassy in Vienna. Not only will the old loss 
of time in transmission occur, but the old narrowing reflections of the 
Austrian standpoint will renew themselves. Any special experts in 
commercial or agricukural fields should be sent separately to Htin- 
gar}' and Austria, reported through the embassy in Vienna to the 
Hungaro-Austrian ministry of foreign affairs, but instructed to reside 
and hold office in or near the respective consulates-general in the two 
countries. The same is true of inunigration, river and harbor, and 
all other special experts or commissioners sent out from Washington. 

The attention of the Washington Government is called to the fre- 
quent sending to Europe of experts in city administration, sugar 
manufacture, prison supervision, State education, and other govern- 
mental and economic matters by single States and cities of the Ameri- 
can Union. Such unaccredited persons frequently call upon the 
embassy or the consulates for letters to the State and local authori- 
ties, in Hungary as well as in Austria, and obtain information and 
deference of treatment which ought to be paid, first of all, to national 
officers sent out from Washington. 



24 PROMOTION OF TRADE INTERESTS. 

In place of commercial attaclies, the United States should, in the 
opinion of this office and of its Fiume agency, first provide salaries 
for deputy consuls and consular agents, making them responsible for 
the routine official work of certifying invoices, viseing passports, 
etc. The principal officers would then be free to devote the greatest 
part of their time to the preparation of consular reports, replies to 
merchants, handling of samples and catalogues, etc. The presence of 
commercial attaches would then be necessary onty in countries where 
technical reports are especially desired at certain junctures in the 
trade and manufacturing in certain lines. 

Diplomatic annotation of consular reports of a purely .commercial 
nature is ever^^where in the world considered unnecessary. On the 
other hand, the Bureau of Trade delations ought to require consular 
officers to confine their reports to information regarding their respec- 
tive districts. At present consuls in Germany are allowed to report 
on both Hungary and Austria, and it is not seen how the embassy in 
Vienna or in Berlin could prevent their transmission for publication. 

Frank Dyer Chester, 

C onsid -General . 



KEICHENBERO. 

« 

In accordance with circular instructions of August 4, 1904, I beg 
to report that the plan for the promotion of trade interests outlined 
in the circular to cliplomatic officers of July 29, 1904, can not. in my 
judgment, be too strongly indorsed. 

From my own experience, and especialh^ in Austria, I believe that 
the plan, which is so comprehensively set forth in the circular as to 
obviate any repetition of reason or argument, would result not only 
in a simplified but a greatl}^ expedited service. The difficulties that 
consular officers meet in securing, and especially from official sources, 
accurate and prompt information have not been too strongly stated, 
while such information, if called for through diplomatic channels, 
would be immediately forthcoming. It would also, I think, be -a 
relief to ever}^ consular officer to be called upon for specific facts 
obtainable within- the boundaries of his own district, instead of for 
general information, which frequenth^ comprehends the technical 
and commercial details of a subject national in its scope and extremely 
puzzling as to what should be its proper treatment by a district officer. 

S. C. McFarlaxd, Consul. 

Reichenberg, August 31^ 190 1^, 



TRIESTE. 



I have the honor to acknowledge the receipt of the Department's 
circular, dated August 4. 1904, requesting an expression of the views 
of consular officers in regard to the plan for the coordination and 
imj^rovement of existing facilities for the collection of commercial 
intelligence and the promotion of American trade interests, outlined 
in the circular to diplomatic officers of Juty 29, 1904. 

In response to these instructions. I beg to say that there can be no 
doubt that diplomatic officers have facilities for collecting commercial 



PROMOTION OF TRADE INTERESTS. 25 

and industrial data which consuhir officers do not possess. The hirge 
majority of onr consuls are located in provincial towns, and in coun- 
tries with a centralized form of government. It is often exceedingly 
difficult to obtain from provincial officers any information relating 
to the affairs of their respective offices without the express permission 
of the Government. 

^ To exemplifv : A few days ago, while preparing my report on ware- 
houses for storage of merchandise in transit or in bond, I had occa- 
sion to request the local warehouse authorities to favor me with a 
statement of their aggregate receipts and expenditures. The super- 
intendent promptly replied that he regretted his inability to comply 
with my request ; that the regulations of the service required him to 
observe absolute secrecy concerning the financial affairs of the ware- 
houses, and that the data which I requested could be obtained only 
from the minister of commerce. * 

Consuls in provincial towns, as a rule, are compelled to draw their 
material for commercial reports from private sources and the metro- 
politan newspapers. As regards my own case, I have to rely chiefly 
en the leading Vienna papers for all really important items concern- 
ing the commerce and navigation and even the sanitary condition of 
this port. 

A few years ago I was greatly surprised one morning to find in a 
Vienna paper the statement that there was a case of plague in Trieste. 
No mention of it had been made in the Trieste papers or in the bulle- 
tin of the local health board. To get at the truth of the matter I 
interviewed one of the physicians of the city hospital. This gentle- 
man reluctantly admitted that ten days before a Greek sailor had died 
at the hospital under rather suspicious circumstances; that the sur- 
geons who performed the autopsy were convinced that the disease 
which caused the man's death was plague, but that under existing 
reg-ulations portions of the diseased tissues had to be sent for a final 
examination to Vienna, whence any announcement concerning the 
case would have to proceed. 

I at once reported to the Department by cable the appearance of 
plague at Trieste. Had it been reported from Vienna as soon as it 
was announced there — that is to say, the day before — I might have 
been suspected of dereliction of duty. 

I merely malvc mention of these cases to show how much easier it is 
for diplomatic officers accredited to a country with a centralized form 
of government to obtain industrial, commercial, and sanitary infor- 
mation than it is for consular officers located in provincial towns. 

By the earnest yet judicious cooperation of our diplomatic and con- 
sular officers, much could be done for the expansion of our foreign 
trade which at present must needs remain undone. If, for instance, 
the diplomatic representatives would refer all important commercial 
and industrial information obtained at the capital to the consuls of 
the district to which it relates, with the request to investigate it and 
report thereon either to the legation or embassy or directly to the 
Department, both branches of our foreign service might hj concur- 
rent efforts often accomplish results which neither could accomplish 
single handed. 

The transmission through the embassies or legations of the Depart- 
ment's instructions to the consular officers for special inquiries, as well 
as for the consular reports prepared in response thereto, would, I 



26 PROMOTION OF TRADE INTERESTS. 

believe, with a fairly stable diplomatic personnel, result in supphdng 
our merchants and manufacturers with more comprehensive and '^per- 
haps also more reliable information as to commercial and industrial 
conditions in foreign countries. 

On the other hand, I am clearly of the opinion that much would be 
gained if consuls were ]3ermitted under certain circumstances to 
transmit commercial reports prepared on their own initiative directly 
to the Department, and not, as the Consular Regulations require at 
present, under open cover through their respective consuls-general. 

The Department's circular of December 15, 1903, requires con- 
sular officers to report promptly all opportunities in their respective 
districts for supplying material for or obtaining contracts in the 
constructon of public or semipublic works, ^s in Austria, the 
period during which proposals for contracts are received is usually 
iimited to thirty da3^s from the day public notice thereof is given, 
American contractors do not often have an opportunity to compete 
unless the notice is brought to their attention with all possible haste. 
Letters sent from here to Washington via England often reach their 
destination in ten dajs. while my official dispatches, when trans- 
mitted via Vienna and Bremen, are probably not less than two 
weeks in transit. Other consuls doubtless labor under similar dis- 
advantages. 

I would, therefore, respectfully suggest that consular officers be 
permitted to send all dispatches reporting notices of contrticts to be 
let or transmitting plans and specifications relating thereto by direct 
mail. 

Fredk. W. Hossfeld, Consul. 

Trieste, Septemher IJf^ WOJ^. 



VIENNA. 



Replying to circular dated August 4, " Promotion of trade inter- 
ests," I beg to express my concurrence in the proposition to bring the 
diplomatic service into closer and more active cooperation with the 
consular service. Consular officers, more particularly in capital 
cities, where the presence of diplomatic representatives places con- 
suls in the background, are handicapped in their efforts to obtain 
information from official sources. It is extremely difficult to secure 
good results from applications for information when they pass 
through the hands of the diplomatic representative. This is doubt- 
less due to the lack of personal agency in presenting such requests, 
as by the present method the requests are probably merely trans- 
mitted without any further attention being bestowed upon them. 
In order that adequate and prompt replies be given to inquiries of 
this nature, care should be taken that they be placed before the 
proper officials, and it would be well also to discuss the subjects 
personally. It would be most advantageous if the consular officials 
could themselves be enabled to meet the government officials and 
were introduced at the different departments for this purpose. If 
this is not possible, such cooperation by the diplomatic representa- 
tives as will insure proper consideration of applications for informa- 
tion is most desirable. This appears to be the one point by which 



PEOMOTION OF TRADE INTERESTS. 27 

a great improvement could be brought about in the present system 
of collecting information. 



Vienna, September IJ^^ I9O4, 



W. A. EuBLEE, Consul- General. 



BELGIUM. 

Report from the Legation. 

American Legation, 
Brussels^ September 5, 190Ii,. 

In reply to circular of July 20, 1904, on the subject of the " Pro- 
motion of trade interests,*' I have the honor to inform the Department 
that the system of collecting and transmitting data relating to trade 
and industrial conditions by the Belgian diplomatic and consular 
representatives abroad is as follows: 

The principal consular officers (consuls of career) make reports 
from time to time on local trade conditions, especially in regard to 
possible markets for Belgian products. The chiefs of the diplomatic 
missions make reports on the general trade and industrial conditions 
of the countr}^ and transmit to the home Government commercial and 
industrial data of an official nature. The material for these reports 
is obtained from official information furnished by the Government, 
but more parti cul arty from data collected from official and other 
sources by the secretaries of the mission, who have, on account of 
their diplomatic rank, access to the special departments of the Gov- 
ernment, which are denied to the considar officers. But in addition 
to official data, the secretaries of legations, who have had years of 
experience in the diplomatic service, who possess a thorough knowl- 
edge of the language and customs of the country, and who have 
generally established personal and friendly relations with individuals 
holding positions of importance in the official, commercial, and 
industrial world, are thus in a position to obtain much valuable 
material for such reports, which, under other conditions, would be 
unattainable. 

As far as I can learn, the diplomatic and consular services of 
Belgium work independently in this regard, the latter devoting, its 
energies more especialty to local trade conditions and favorable 
marl?:ets. My experience proves that much of the official information 
furnished by foreign governments through the usual diplomatic 
channels is often incomplete. As an example, I may refer to official 
information which the Belgian Government furnished for a number 
of years to this legation, at the request of the Departihent, on the 
subject of sugar bounties granted in this country. The information 
was correct as far as it went, but incomplete. The material for my 
report to the Department on this subject, dated December 28, 1899, 
was obtained from official sources and publications, from conversa- 
tions with individuals having a special knowledge of the subject, 
engineers, members of commercial bodies, and exporters, as well as 
from personal visits to the sugar factories. 

The question of having commercial attaches at the Belgian lega- 
tions abroad was broached a few years ago, and even brought before 



28 - PROMOTION OF TRADE INTERESTS. 

the Parliament, but was AvitlidraAvn for reasons of economy. The 
minister for foreign affairs informs me that it is again being agitated. 

I have seen much ^^ahiable work accomplished by the British com- 
mercial attaches abroad, having diplomatic rank, possessing a thor- 
ough knowledge of the countr}^ aiid its language, and who are sta- 
tioned for a number of years in one country, thus having the means 
at their disposal of obtaining special, unusual, and valuable informa- 
tion. In my opinion, if Congress would provide for such commercial 
attaches abroad, the efficiency of the diplomatic service would be en- 
hanced. 

If this plan should not meet the views of Congress, or in case it 
should be considered unnecessary to have a commercial attache at this 
legation, much valuable data and information of a commercial or 
industrial nature might be collected by an active young attorney, 
provided he were to receive a lixed annual compensation. The 
British legation in Brussels has such a man who collects for the lega- 
tion much valuable information and data on these subjects not obtain- 
able through the usual diplomatic channels. 

Referring to the three interrogatories included in the circular in 
question, I have the honor to say that in my opinion it would be en- 
tirely practicable for me to transmit to the consular officers in this 
country instructions from the Department containing particular 
inquiries, noting any suggestions which may occur to me, and adding 
any official data on the subject in question which the consular officer 
might not be able to obtain, except through diplomatic channels. I 
would also be very glad to receive the answers to such special inquiries 
from the consular officers, when the Department so instructs, and to 
attach any amendments or additions thereto for the further informa- 
tion and consideration of the Department. 

There is no cooperation between the diplomatic and consular 
officers of Belgium similar to the above plan, as proposed by the De- 
partment. The}^ work independently of each other; but, as I have 
before stated, the more important consular officers of Belgium, consuls 
of career, who are obliged, before appointment, to have passed the 
special commercial examination of universities and to have received 
the degree lately instituted of '* commercial engineer,' ■ make very com- 
plete reports on industrial and commercial conditions in their respec- 
tive districts, for which work they are especially fitted by their edu- 
cation and the special examinations which they are required to pass. 

If Congress were to provide for a legal adviser or counsel of the 
legation, it would be all the additional assistance I should require to 
carry out the programme of cooperation, as described under question 1. 

Lawrexce Townsend, Minister. 



Ojnriions of Consular Officers. 



ANTTVEKP. 



Returning from leave of absence, I find Department circular letter 
'• Promotion of trade interests," under date of August 4, which Vice- 
Consul-General Haine, in charge, deferred answering, referring the 
same to me. 



PEOMOTION OF TRADE INTERESTS. 29 

In reply, I have to state that the change suggested meets my most 
hearty approval, and that closer relations for the purpose designated, 
and along the lines proposed, between the diplomatic and consular 
representatives abroad, could not, in my judgment, prove otherwise 
than advantageous to the manufacturing and trade interests of our 
country The plan is practical and on business lines, and I hope to 
see it inaugurated, although I am free to say that, during my eight 
years' experience in the consular service in Itnlj, England, and Bel- 
gium, requests for information desired from ambassadors or ministers 
have been cheerfully and promptly complied with. 

Church Howe, Consul- General. 
Antwerp, Deceinher -9. 190. I^. 



BBUSSEIiS. 



In reply to Department circular requesting the expression of views 
upon the plan for the coordination and improvement of existing fa- 
cilities for the collection of commercial intelligence and the promo- 
tion of American trade interests abroad, I have the honor to say that 
I am of the opinion that if the cooperation of our diplomatic and 
consular officers could be carried out in the kindly spirit of mutual 
assistance, it would be a valuable aid in promoting the object of the 
circular in question and would undoubtedly assist in our future com- 
]nercial expansion. Consular officers are frequently handicapped in 
transmitting full reports to the Department through difficulty in ob- 
taining some desired official data, due to existing conditions. Per- 
sonally, I have been generally fortunate, through the kind courtesy of 
officials with whom I enjoy friendly relations, in procuring informa- 
tion which the Department has instructed me to secure. 

I am inclined to believe that much of the usefulness desired by the 
Department by the proposed cooperation would be destroyed if dip- 
lomatic agents are instructed to have revision and annotations made 
of consuls' reports transmitted through them, as the revision and an- 
notations would probably be done b}^ a clerk attached to the embassy 
or legation who in all likelihood had collected similar data, and might, 
to the prejudice of the absolute authenticity of information contained 
in the consul's report, revise same if it conflicted with data presented 
b}^ the clerk. 

George W. Roosevelt, Consul. 

Brussels, August 25, 190.!/.. 



GHENT. 



Pursuant to the Department's circular '' Promotion of trade inter- 
ests," I have the honor to state that, in my opinion, the assistance and 
cooperation of the American diplomatic officers with the American 
consular officers in Belgium would not improve or facilitate the col- 
lection of commercial intelligence for the promotion of American 
trade interests in this consular district. 

The courtes}^ of Belgian officials in this district has always been 
cordially extended, as has that also of the different departments of 



30 PKOMOTION OF TRADE INTERESTS. 

the central government at Brussels, whenever I have had occasion to 
request official information at first hand. This information has been 
disappointing, however, in two respects, namely, the delay in trans- 
mission and meagerness in detail. 

It is impossible to obtain commercial reports that are entirely sat- 
isfactory. The chief obstacle that prohibits the free procurement of 
complete and reliable information on the industries and commerce of 
this district is the reticence of the parties who are -directly engaged in 
them. The general feeling is that such information is a part of the 
good will of the business or stock in trade, to be in every respect zeal- 
ously guarded lest a competitor profit thereby. This has defeated 
several attempts to make reliable reports, the information obtained 
proving unreliable on further inquiry. 

As to a commercial attache, I do not believe he would be in any 
better position than this consulate with resjoect to procuring reliable 
commercial and industrial information in this district. If, how- 
ever, on the other hand, this Government should establish a com- 
mercial information bureau in each province, with a competent of- 
ficer in charge whose investigations and researches would be available 
to its local members and to the members of the consular body, accu- 
rate information on the conduct of industries and the commercial de- 
mands of the district could be obtained. Otherwise, present condi- 
tions do not permit consular officers in this district to learn the facts 
to make complete and accurate reports. Certain detailed informa- 
tion on sonie subjects is obtainable indirectly. The best method to be 
employed is for American salesmen to compete on the ground with 
the salesmen of other countries, who thus sell the goods, wares, and 
merchandise of their respective countries. 

Feank R. Moweer, Consul. 

Ghent, Sejrtemher 5, lOOJf. 



LIEGE. 



In reply to Department's circular " Promotion of trade interests," 
I beg to say that, in my judgment, diplomatic officers, enjoying 
privileges in advance of consular officers which offer ready facilities 
for obtaining authoritative commercial and industrial information 
direct from the ministerial departments of the Government, have a 
valuable capacity for furnishing statistics and other useful data. 

In Belgium, the provinces in which the various American consu- 
lates are located have departments fashioned after the ministerial 
departments of the parent GoA^ernment. These departments make 
annual detailed reports covering the various heads within their juris- 
diction, which reports are forwarded to the Government offices at 
Brussels, as well as to the consuls throughout the Kingdom. These 
provincial reports are later classified and the aggregate computation 
is published, and the consuls are supplied with a copy. 

It will therefore be seen that unless the report is a special gov- 
ernmental one, the nature of which I can not determine, and con- 
cerning which no special publication has been made, the consular 
officer is as thoroughly equipped with statistical information as the 
diplomatic officer can possibly be. The publication of bare statistics 
without a relative explanation is oftentimes not susceptible of a clear 



PROMOTION OF TRADE INTERESTS. 31 

interpretation. The powers of the diplomatic officer could furnish 
the aggregate result of the provincial reports, beyond which, with- 
out a supplementary consular re]3ort touching the articles manu- 
factured or produced in the various consular districts, such report 
would lack the necessary detail to give it value. A consular officer, 
being abroad in a commercial capacity, is surrounded with opportu- 
nities that a diplomatic officer does not enjoy. He has his valuations 
and the methods of reaching the same as presented in the consular 
invoices passing through his hands to guide him. He enjoys an in- 
timacy by reason thereof with the shipper, who supplies him with in- 
formation touching the details of the manufacture of articles in 
which he is interested, as well as market conditions, both existent 
and in expectancy. Consuls are on the groinid and in daily con- 
versation with some dealers or shippers and can better note a demand 
for American goods than can the diplomatic officer who never has oc- 
casion to visit the consular districts. 

With the commercial and industrial publications issued by the Gov- 
ernment at hand, consular officers are as well equipped, from a statis- 
tical standpoint, as is the diplomatic officer, with the further advan- 
tages as noted above. The diplomatic officer would be compelled to 
caTl upon the consular officers for a detailed report of the special pro- 
ductions of their districts, and apart from the modification of certain 
statements that might be harshly construed by the Government to 
which he is accredited, he could do no more than supply to the report 
the information compiled by the ministerial departments, which in- 
formation is already in the hands of the consular officers. 

I believe, therefore, that consular officers are more capable of com- 
piling reports on commercial and industrial matters than diplomatic 
officers, for the reasons above mentioned. This, of course, applies to 
Belgium as well as to articles produced specially in the consular dis- 
tricts therein. 

As diplomatic officers would have to depend upon the consuls for 
their matter, it would appear that the present system of forwarding 
direct to the Department woidd save time. The diplomatic officer 
could be requested to supplement anything required from Government 
sources. 

Jaivies C. McNally, Consul. 

Liege, Sej)tember 3, 190 Jf. 



DENMARK. 

Report from the Legation. 

American Legation, 
Copenhagen^ Octoher 13, 190 If. 
Rephdng to the Department's circular of July 29 last, I w^oulcl say 
that, during my incumbency of the office, this legation has considered 
it to be one of its legitimate functions to assist in promoting our trade 
interests by independent efforts as well as by cooperation with the 
American consul in this country. Care has been taken to avoid 
friction that might result from undue usurpation of duties that 
would naturally devolve upon consular officers, and no iitBtailt}^ has 
been experienced on account of such Ji^lomatic '/?Grk ao you suggest. 



32 PROMOTION OF TRADE INTERESTS. 

Whenever the consul has found it necessaiy to apply for information 
from the Danish Government through the legation, the request has 
received prompt and courteous attention. It is to be remembered in 
this connection that we have but one consulate in the Kingdom, 
namely, at Copenhagen. This, of course, facilitates such cooperation 
as that indicated in yoiw circular and makes some of the difficulties 
mentioned inapplicable to Denmark. 

With reference to the specific ^^oii^ts on which you desire my 
opinion, I find nothing uncler Xo. 1 that would prove impracticable 
or embarrassing if intrusted to this office. 

No. 2. Denmark has no such cooperation as that outlined, nor has 
it any industrial or commercial attaches. 

It occurs to me that the United States Government would profit 
and our consular service would be improA'ed b\^ the appointment of 
commercial and industrial experts, to be distributed throughotit the 
world/at such centers as would be considered most advantageous, hav- 
ing regard to trade zones and similarity of commercial activities and 
interests. The work assigned to them would be of stich nature that 
diplomatic representatives could not well undertake it; and though 
consular officers may have general qualifications for discovering and 
developing markets for American goods, the}^ have not, as a rule, the 
special training or knowledge of an expert. Such an auxiliary as I 
have in mind Avould be of great value to our consular body as an 
educator, a counselor, and an inspiring guide. By covering a com- 
paratively large field, over which he would be required to travel fre- 
quently, he Avould become the disseminator of knowledge among the 
officials in his territory and be able to contribute much toward bring- 
ing about better S3^stem and articulation in their work. Personal 
contact and exchange of ideas is of inestimable A'alue in all work per- 
taining to commerce, and a medium such as indicated would, in nw 
opinion, do much to perfect our consular service. The A^alue of the 
independent worlv that Avould be carried on by such experts is obA^ous. 
Their appointment and tenure of office should be made as independ- 
ent of political exigencies and party changes as could be devised. 

To question 3, I haA^e to say that no additional assistance would be 
needed to enable me to carry into effect the programme described 
under question 1. 

Lahrits S. Swenson. Minister.. 



Opinions of the Consul. 

COPEISHAOEN. 

Eeplying to Department circular '• Promotion of trade interests,"* 
I have to state that I have read the Department instruction of July 
29, 1904, addressed to the diplomatic officers of the United States, 
and I most cordially indorse the plan therein outlined. 

I may add that the general propositions laid down in said circular 
of July 29 are in perfect harmony with Adews I haA'e frequently 
expressed to the American diplomatic representatiA^es at this post in 
discussions of the subject of the promotion of our trade interests 
abroad. There is no doubt that the social as well as the official pres- 



PftOMOTlON OF TEADE INTERESTS. 3B 

tige enjoyed by diplomats places them in a position to obtain more 
reliable and more valuable information on many subjects of interest 
to our commercial people than consuls can obtain. This is especially 
true where the information sought is of an official or semiofficial 
nature. 

There is no excuse for the minister and the consul at a foreign capi- 
tal not cooperating enthusiastically in the plan outlined or in any 
plan which has for its aim the enhancing of our commercial power. 

Many of our legations could be converted into positive forces of 
incalculable value to our commercial interests were some such proposi- 
tion as is outlined in the circular of July 29 carried into effect. 

Raymond E,. Frazier, Consul. 

Copenhagen, August 22^ lOOJf. 



FRANCE. 

Report from Arahassador Porter. 

American Embassy, 

Paris, Octoler 6, 1901^. 

Ill reply to the circular of July 29 last, requesting information re- 
garding the capabilities of the diplomatic service for the promotion 
of our trade interests in France, etc., I have the honor to submit the 
following considerations : , 

There is no doubt that diplomatic officers should realize the fact 
that this is essentially a commercial age, and that a representative 
abroad can not serve his country better than by directing his efforts 
toward improving and enlarging its trade relations. With this 
object in view, there has been in this countr^^ a close and effective 
cooperation between this embassy and the consulate, and any com- 
mercial information the latter desires to obtain from the French 
Government is transmitted cheerfully and promptly through the 
diplomatic channel of the embassy, although it at times greatly 
taxes the limited force available for such work. This method of 
cooperation has been found very satisfactory. 

My observation teaches me that the consular service has visibly 
improved from year to year, and if our best and most experienced 
consuls be retained in oirice, these good results will, I am sure, con- 
tinue to make themselves felt. 

I shall answer the questions in the circular in their numerical 
order. 

Question 1. — It would be practicable for this embassy to transmit 
to consular officers in France instructions from the Department of 
State making particular inquiries; to send them such suggestions as 
might be of service ; to receive their answers and to forward them to 
Washington wdth such annotations as might be dictated by diplo- 
matic or other considerations. This would, of course, create some 
delay in the transmission. One objection to such a course would be 
that it might suppress somewhat the ardor of consuls who always 
like to communicate directly vvdth the Department of State, and 
inight lessen their initiative by causing them to feel that their re- 
H. Doc. 245, 58-3 3 



34 PEOMOTION OF TEADE INTERESTS. 

ports, after being prepared with great care, were liable to comment. 
alteration, and criticism by another branch of the foreign service. 
The other objection is the increased expense that would be entailed, 
as set forth hereinafter. 

Question 2. — As above stated, there is at all times the most cordial 
cooperation between the diplomatic and consular services in all 
commercial matters. The consuls secure all the information they 
can from outside sources, and when they wish any facts that can be 
better obtained from the French Government, the embassy, acting in 
its diplomatic capacity, makes the necessary requests, which are 
nearly always cheerfully complied with by the Government. 

The French Government has no commercial attaches. One or two 
special ones have been at times appointed at Peking and at St. 
Petersburg, for instance, but not regularly attached to the diplo- 
matic staff of the embassy. 

As to whether commercial attaches to an embassy would be useful 
in our service, in my judgment the usefulness would depend almost 
entirely upon the character of the appointees and the facilities placed 
in their hands. If the attache were a man of practical commercial 
experience, possessing a knowledge of the language of the country, 
and were allowed ample clerical assistance to aid in collecting infor- 
mation, collating, translating, annotating, and forwarding reports, 
etc., he could undoubtedly be of great assistance, as his diplomatic 
quality would enable him to communicate with certain officials, and 
with proper tact, he could cultivate intimate relations with subordi- 
nates charged with certain branches of the business who could render 
him useful aid. The valuable reports of militar}^ and naval officers 
assigned to embassies are examples of the important information and 
suggestions which can be obtained through attaches possessed of the 
requisite technical knowledge and devoting their labors to a particular 
subject. 

To command the services of men competent for such places, there 
would have to be ample compensation, and it would be necessary to 
establish a well-equipped bureau. All this would form quite an 
item of expense. 

Question 3. — If the embassy should undertake the work embraced 
in this question, there would be required one additional secretar3^ 
selected for his familiarity with commercial affairs, and having a 
thorough knowledge of the French language; a stenographer and 
typewriter capable of writing the two languages, and one or two addi- 
tional office rooms. The expense, therefore, would be about as great 
as if the position of commercial attache were created, and m}^ judg- 
ment is that, if a change be made in the method noAv pursued, it would 
be better to assign commercial a.ttaches. 

Horace Porter. 



Opinions of Gonsid- general at Paris . 

No jnemorandum on the subject of Department's circular of July 
29 last, addressed to the diplomatic officers of the United States, on 
the subject of " Promotion of trade interests," would be complete 
were I not to acknowledge, with sincere respect, the unvarying cour- 
tesy, attention, immediate cooperation, and conscientious execution 



PROMOTION OF TEADE INTEEESTS.' 85 

of all requests which this consulate has received at the hands of Gen. 
Horace Porter, American ambassador at Paris, and the secretaries of 
that embassy. If at any time, there has been any delay in obtaining 
information through the embassy it has been no fault of the ambassa- 
dor or his able and courteous secretaries. The requests, however, have 
been confined to the fewest possible number, and the embassy has been 
spared, so far as this consulate is concerned, all unnecessary trouble. 
In another part of this dispatch, reference is made directly to the 
embassy in connection with obtaining special information. It gives 
me pleasure, however, to testify to the very pleasant relations which 
exist between this consulate-general and the American embassy in 
Paris. 

Inquiries received at this consulate-general are of all descriptions, 
but those referring to business can be classified into four different 
groups. They come from citizens desirous of selling their products 
in France (sellers) ; from citizens desirous of purchasing French 
goods (purchasers) ; then we have American manufacturers, etc., 
who are anxious to learn certain processes of manufacture, etc.; to 
these I shall refer as " manufacturer." Other citizens will ask for 
certain statistics, laws, and regulations (either governmental or 
municipal) ; also certain facts concerning corporations, etc. 

^^Tien a seller applies to this office for special information, the 
best source from which to seek material for reply is, of course, the 
trade interested in the article he wishes to sell. Facts desired will 
cover the approximate business, maximum and minimum; what 
goods are likely to compete with our American product; whether 
said goods are of home manufacture or imported — if homemade, 
whether the first material is imported or obtained in the countr}^ of 
production ; price of first material, comparative quality, if imported, 
cost of transportation, duty, and other expenses. Then it will be 
calculated what chances our article would have against the similar 
article already in the market. The question of packing and how 
payments are made are also interesting points. 

There is no need of diplomatic help in the case of a seller, and 
the consul, on account of his daily contact with wholesale and retail 
dealers, business agents, agents of sellers and of purchasers, is in 
the best possible position to get at facts. 

In the case of purchasers, the task is much easier yet. To discover 
the best house, obtain catalogues, prices, conditions, etc., is somewhat 
eas}^ Diplomatic channels are entirely useless, again, in this case. 

As to manufacturers who wish to obtain inside information, among 
the numerous business men surrounding a consul he can always pick 
out several who are placed to get the facts. The consul has many 
occasions to be of service to those who help him, and in the course 
of time the advantage is reciprocal. Diplomatic intervention in 
this case would be valueless. A government would not give, and 
could not consistently give, any information likely to injure the 
business of any of its citizens. Should the diplomatic channel be 
used, the demand would have to be made in writing, and this demand 
would then go from bureau to bureau, studied all the w^ay quite 
closely, and 90 per cent of the answers would be so incomplete that 
they would be of no practical service. But governments know 
nothing of the private affairs of manufacturers. The trades here 
are protected by their Chambres Syndicales. These are very active — 



36 PROMOTION OF TRADE INTERESTS. 

at their meetings all matters interesting their trade are discussed — 
and there is no doubt that the creation of a commercial attache to 
an embassy would be noticed and criticised, with the result that 
the alarm would be given from Paris to all parts of France. The 
infanc};^ and adolescence of our country are things of the past. In 
its full-grown commercial maturity, it can and does serve as a 
model to its European parent stem. Many articles which used to 
be exported to America are now manufactured there with prospects 
of being imported here. France has lost a great portion of her 
trade, and the French manufacturers and dealers are jealously 
guarding their secrets from foreigners, but more particularly in 
the case of America and Germany. 

When inquiries are made touching statistics, laAvs, regulations, 
etc., it may happen (although very rarely) that answers will have 
to be obtained through the embassy. It is rare, because most of the 
statistics, all laAvs, and most regulations are printed and published. 
It is onh^ when other means have failed that, as a last resort, the 
good offices of the embassj^ are requisitioned. 

This consulate-general corresponds freely and directly with the 
Direction Generale des Douanes (the custom-house officials in Paris), 
all chambers of commerce, all Chambres Syndicales, all prefects, 
mayors, directors of institutions, all departmental and municipal 
offices, and sometimes with chiefs of bureaux of various ministers. 

It must be remarked that, in most cases, information which is 
important for us to obtain is equally important for the local industry 
interested to keep from us, and it is always by going quietly about it 
that something can be obtained. 

The Department very judiciously says : 

The consular service has made a general and very marked advance in its 
utility in this direction in recent years. So much so, in fact, as to have become 
the object of imitation and emulation on the part of the most prominent indus- 
trial nations, etc. 

This is very fair to the consular service, and it would not be sur- 
prising at all to find among our imitators some of the nations who 
have a '' commercial attache." 

In fact, a commercial attache would be held in suspicion, and for 
the same reason that a Government would not furnish any vitally 
valuable information on military or naval affairs to a military or 
naval attache, they would keep carefully away from a recognized 
" commercial attache " what they might realize to be secret con- 
cerning national industry. 

The foregoing remarks concern inquiries from American citizens 
desiring reports on special subjects. A consul is the best American 
authority to mal?:e a report on any matter touching the trade or 
industry of his district, and it is not clear how a commercial attache 
stationed, for instance, at Paris, coidd undertake to correct reports 
from St. Etienne on ribbons, from Calais on laces, from Roubaix on 
woolens, from Grenoble on gloves, or Lyons on silks. 

The Department continues: 

You will appreciate the fact that, to prevent friction with the consular corps 
and to preserve the spirit of initiative, which is one of its most valuable fea- 
tures, etc. 

It is obvious that, to feel that his report goes direct to the Dej)art- 
ment, encourages a consul to put forth his best efforts, while the idea 



PROMOTION OF TEADl^ INTERESTS. 37 

that his report must be forwarded to Paris to an official who, out of 
honest zeal or simply personal pride in justifying his official existence, 
ma}^ cut out portions of the reports or change them to suit his indi- 
vidual icleas, is not a system calculated to stimulate his spirit of 
initiative. 

From my daily experience in collecting information for the Depart- 
ment, and replying verbally and by letter to the numerous applicants 
for information, I have never had but one view of the matter under 
report. In my relations with business men of various nationalities, 
I have heard nothing but unqualified praise of the consular system 
of the United States. It is, indeed, regarded as a model auxiliary to 
trade interests. So thoroughly is the position of an American consul 
understood in France in this respect that questions as to trade matters 
rarely if ever excite suspicion in the mind of Frenchmen of business. 
No fear of political motive is ever evinced, and confidence, I am glad 
to say, is always shown in the Government I have the honor to repre- 
sent as a consul-general by the business community of Frenchmen 
who are in my consular district. Were any changes in the system 
as at present in operation to be made, I should, as a consul and as an 
American, be greath^ afraid that the change would not be for the 
better. On the contrary, it seems clear that the change more acutely 
necessary to benefit the promotion of trade interests is in the direc- 
tion of enlarging the clerical staff of the American consulates abroad, 
and more particularly in the large towns, where trade interests are 
centered and where the clerical staff of the consulates is notoriously 
inadequate. 

This is the plan for the coordination and improvement of exist- 
ing facilities for the collection of commercial intelligence and the 
promotion of American trade interests abroad, which I have the 
honor to respectfully recommend and urge : 

If, however, a commercial attache to the embassy be created, then 
it seems to me that such an officer would fulfill his mission to the best 
advantage as a separate official, working independently, directing his 
own staff, and responsible alone for the satisfactory performance of 
the system without reference to the present consular system. 

If such an officer were to be attached to the consular service, instead 
of being connected with the diplomatic corps, the change would, in 
my opinion, be less abrupt, less likely to excite suspicion, and have 
the merit, among other things, of seeming to follow in principle, at 
least, the American plan of a more effective consular trade informa- 
tion bureau, rather than be an experimental imitation of the system 
of another power, however friendly and sympathetic that power 
may be. 

John K.'Gowdy, Consvl- General, 

Paris, Septemher 23, 190.!^. 



Opinions of other Consular Officers. 



BORDEAUX. 



I have the honor to acknowledge the receipt of your circular, " Pro- 
motion of trade interests,-' asking my opinion as to the advisability 
of making the consular service an appendage of the diplomatic corps. 



38 PHOMOTIOIT OF TEADE INTERESTS. 

The consular service of the United States is, in m}^ opinion, already 
the most overworked and poorly paid of any branch of our civil 
service. Aside from the necessary supervision of the State Depart- 
ment, it is subject to the behests of the Treasury Department, the 
Agricultural Department, and the Department of Commerce and 
Labor. 

The work of this consulate, for instance, has been more than 
doubled by the action of the Agricultural Department under the 
pure- food law, without an increase of clerical force. It was about 
all we could stagger under before, and this additional labor has 
necessitated great neglect of the regular work of the office. Every 
increase in the number of Departments which have the right to com- 
mand the services of the consul of necessity greatly increases his 
labors. The union of the consular and diplomatic services would 
give the consul in every commercial country two or three new 
superintendents. At present, the consul has some power of self- 
protection, not being required to undertake to answer inquiries which 
would interfere Avith the regular work of his office. Thus when the 
consul at Bordeaux w^as asked to report in horsepower units the im- 
proved and unimproved water power of all the streams in this con- 
sular district, embracing the myriad rivers and rivulets flowing north- 
ward from the Pyrenees, I felt qiiite justified in replying that, unless 
given a scientific equipment equal to that required for the Nica- 
raguan survey, a year's time, and some millions to defray the ex- 
pense, I could not undertake the task. There are thousands of other 
inquiries not so all embracing as the one mentioned above, perhaps, 
but of a nature to require the time of one clerk to gather the proper 
data for replying thereto. 

It should not be forgotten that the success of our consular service 
is mainly due to the individual initiative of our American consular 
officers, not to any system of clerical control. That it is infinitely 
superior to scientifically elaborated systems of machine-made officials 
nobody pretends to deny, and the chief reason of this superiority is 
the individual independence and initiative of the officers comprising 
our consular force. 

I recognize the temptation which confronts everyone connected 
with the administration of an official organization to reduce its parts 
to interdependent regularity, but the consular service is exceptional m 
its character, and it forever must be dependent for its success on its 
unrelated units. The conditions under which it acts are not under 
the control of our Government. Consuls have no authority to en- 
force any demands they ma^;^ make in the name of their Government. 
They must rely for success upon their individual power to induce 
the subjects of other governments to cooperate with them. Such 
work can not be systematized and plotted in advance any more than 
can the labors of a judge or lawyer. If the American consul is re- 
duced to the position of a mere clerk, the. efficiency of our consular 
service will, in my opinion, be greatly reduced. Nothing needs 
revision more than this service, but it can not be done through imita- 
tion of foreign services, which, under infinitely more favorable con- 
ditions, have resulted in less efficiency. 

In France, at least (I do not speak of other countries, but believe 
the same to be true throughout Europe, except Eussia and Turkey) , 
there is another reason wh}^ commercial inquiries should not be con- 



PEOMOTION OF TRADE INTERESTS. 39 

ducted through Government channels, which any connection with the 
embass}^ would entail. In France there is a universal apprehension 
that Government inquiries may result in increased taxation, which 
makes it easier for a consul to obtain specific commercial information 
on his personal responsibility than for the French Government to do 
so. The reason is plain. The French merchant or manufacturer has 
no fear of increased taxation from the consul's inquiry. 

From these and other not less patent considerations, I am clearly of 
the opinion that the attachment of the consular to the diplomatic serv- 
ice of the United States would result in the gravest injury to Ameri- 
can commercial interests. 

Albion W. Totjrgee, Consul. 

Bordeaux, November 2. 1901^.. 



CAXAIS. 



In repty to Department's circular, " Promotion of trade interests," 
I beg to submit the following : 

After six and one-half j^ears' experience at this consulate I am en- 
abled to say that I have never had any difficulty in obtaining any 
information that I sought in compliance with a request from the 
Department. However, questions might be put that would necessi- 
tate the assistance of the embassy, but for the present I can only say 
that no such situation has arisen. I know of no information that 
might be sought in this consular district where even the assistance of 
the embassy would be of value, as, for instance, manufacturers have 
their secrets in fabrication that no force can make them yield up. 
When I have applied for statistical information, it has always been 
graciously furnished-. 

In writing this report I am aware of the fact that other conditions 
may exist in other consulates, but I can only report as to this one. 

This consulate is one which has a large export of machine-made lace 
to America, but has little or none in the way of imports from America, 
and I think that an American consul at this port who is ambitious to 
promote trade interests in the way of imports from America will find 
little gratification for his ambition. 

James B. Milner, Consul. 

Calais, October 12, 190!^. 



GRENOBLE. 



In reply to circular, " Promotion of trade interests," I beg to say 
t^iat. to this consulate, the proposed action of bringing the diplomatic 
and consular services into closer relationship in common effort to 
gather commercial statistics and further the expansion of American 
trade, seems to be both iinportant and opportune. 

The constant increase of our trade in the world's markets, the car- 
rying of our surplus products into all open fields, the spreading of 
new methods and new appliances in betterment of the world's condi- 
tion, call for continuous and persistent efforts in every direction and 
in the best possible ways. To further this end and to accomplish 
even more than is being done at present, it would seem to be eminently 



40 PROMOTION OF TRADE INTERESTS. 

practicable that the Government utilize all the resources at its com- 
mand through the diplomatic as well as the consular service. 

This consulate stands ready to comply with any instructions and to 
follow up to the best of its ability any suggestions that may come to 
it from the American embassy in Paris, thus working together for the 
common end. 

For the most part, the French officials and business houses of the 
three departments comprised in this consular district have been cour- 
teousl}^ disposed to furnish us such information and statistics as we 
have from time to time sought of them, the only exception being in 
the case, two years since, of the prefect of the Department of the 
Upper Savoy, who declined giving information as to dairy machinery, 
etc., on the ground that it might interfere with their own special 
industr}^ A personal interview with this official, whom I had not 
met, might have resulted otherwise. 

C. P. H. Nason, Consul. 

Grenoble, October 26^ WOJf. 



The cooperation of the American diplomatic and consular services 
in the promotion of our trade interests in foreign markets would un- 
doubtedly increase the efficiency of the machinery now in use by 
which our manufacturers and exporters are kept informed of the 
business conditions of other countries. 

If there were a diplomatic officer attached to our most important 
embassies and legations whose duties were confined to commercial 
matters, he not only would be of great assistance to our consular 
officers in the preparation of their reports by obtaining quickly full 
and up-to-date official statistical data at the fountain head, but he 
would also be in a favorable position to gather commercial and indus- 
trial information of vital interest to our manufacturers and exporters. 

In France, the official publications, with the exception, perhaps, of 
those relating to the operations of the custom-house, generally contain 
statistics one or two years old. When a consular officer is in need of 
late data or of official information not published, he must, under the 
present conditions, avail himself of the services of the embassy at 
Paris, which are always cheerfully and readily given, but owing to 
the delays which arise in the Government bureaus, a long time must 
elapse before a repl}^ is received. A commercial attache, however, 
who had established friendly relations with the French bureau offi- 
cials in a personal visit could not only procure the information de- 
sired quickly, but it would be more exhaustive than if it were written 
in an official communication. 

Paris may be said to be the center of the French economic Avorld. 
for in the capital city most of the industrial and commercial establish- 
ments of the country have either their head offices or are represented 
there b}^ agents. Therefore, as remarked above, an American com- 
mercial attache would have the facilities for getting valuable infor- 
mation or at least suggestive hints, which could be investigated either 
by himself or by the consular officers in whose districts the manufac- 
turers or principal houses are located. In Paris, also, a commercial 
attache would have access not only to the most complete public libra- 



PEOMOTION OF TRADE mTERESTS. 41 

ries in France, but also to those of commercial, industrial, and scien- 
tific institutes like the Musee Social, the American Chamber of Com- 
merce, etc., and to those of the principal trade and industrial 
syndicates. 

In the event of the Department deciding to appoint commercial 
attaches, I would suggest, in order that their work be effective, that 
they be given the title of secretary — second, third, or fourth, as the case 
might be. This would be almost a sine qua non whenever they were 
obliged to apply for information for statistics to any government 
oiRcial, ministry, or department. 

The attache or secretary should be a man of good address and pos- 
sessed of savoir-faire, without which but little can be accomplished 
in Europe. He should be capable of speaking fluently, and of corre- 
sponding correctly in, the language of the country where he is sta- 
tioned, and his salar}?^ should be large enough to raise him above the 
status of a simple employee. 

If instructions from the Department of State to prepare reports 
ujDon any particular matter Avere transmitted through an embassy 
having a commercial attache, this officer, being familiar with the 
commercial, maritime, and industrial interests of the country in 
which he resides, would know best the sources whence to obtain the 
information desired by the Department, so that the Department's 
instructions Avould be sent to the consular officers in whose districts 
the matter could be the most thoroughly investigated. 

The transmission of requests for reports through the embassies or 
legations would not tend to weaken the spirit of initiative, as reports 
asked for, as well as those which may be made by the consular officers 
without special instructions, could be transmitted and printed over 
each individual consul's name or signature as now. 

If by any means the work w^hich is at present being performed by 
our consular corps, looking toward the preservation of tlie commercial 
and industrial welfare of the American people, could be improved, I 
would recommend that at least a trial be made. 

A. M. Thackara, Consul. 

Havre, Septemher i, 1904- 



LA ROCHELLE. 

I have the honor to acknowledge the receipt of the circular, Pro- 
motion of Trade Interests. Answering the questions from a con- 
sular point of view^, and especially as those answ^ers might apply to 
my consular district, I most respectfully suggest as follows : 

1. For general information concerning France, diplomatic officers 
are in good position to obtain special figures, facts, etc., but it seems 
to me that the consul-general at Paris, w^ho is necessarily in close 
touch with the great business interests in the capital, is much more 
advantageously placed to suggest to consular officers or to obtain 
special or general information. Without desiring at all to flatter our 
consul-general at Paris, Mr. GoAvdy, judging^ from the respect and 
kindly disposition tow^ard him of French officials, any information 
would be as promptly accorded to him as to a diplomatic officer. 
Apart from this, however, there is more or less a tendency in France 



42 PEOMOTION OF TEADE INTERESTS. 

to consider the American or any other consul as more than a simple 
business agent of his countr}^, this being clue, perhaps, to the fact 
that the functions of a French consul have no definite di^dding line 
from those of a diplomatic officer. 

From another point of view, it would seem that, outside of the 
consul-general, reports of matters that pertain ver}^ generally to com- 
mercial conditions may be very difficult to substantiate, while to the 
contrary, reports on matters dealing directly with a particular consu- 
lar district could be made more intelligently and more correctly by a 
consul on the field. During my service, I have endeavored to limit 
my reports exclusively to matters which concern my consular dis- 
trict, for had I wished to generalize or occupy myself with special 
matters in other districts, there would be 300 reports a year to make. 

2. This question as a whole I am not capable of answering intel- 
ligently, and consequently, I make no comment except on the last 
question. 

While it might be of advantage in some countries to have a com- 
mercial or industrial attache, whose duties would keep him at the 
capital and in the embassy or legation, I do not see how it would be 
of an}^ advantage in France unless such an attache, who could be 
connected with as much success with the consulate-general as with 
the embassy, should have the largest possible liberty, with means of 
traveling, visiting industrial centers and various ports. In fact, 
the attache should have a special mission if he is to exist, and he 
might supplement ver^^ efficienth^ the work of the consuls in supply- 
ing them with figures, facts, or suggestions for their reports. 

One of the great drawbacks to consular efforts along this line is 
the expense of traveling, for which no provision is made in our serv- 
ice. Should each consul be permitted, at the expense of the Gov- 
ernment, to visit the trade centers of his district and make reports on 
the conditions existing, he being jDersonally known already to the 
exporters and importers of his clistrict, much good could be accom- 
plished. In such an event the consul-general, who is in the very 
center of commercial activit3% would be in a position to suggest 
greater detail or exactitude on the part of any or all reports concern- 
ing any particular matter which would pass under his eye. 

George H. Jacksois", Consul. 

La Rochelle, Septemher 6, 1904. 



LIMOGES. 



I have the honor to acknowledge the receipt of circular of August 
4 and its inclosure. 

I would respectfully state that, after an experience of sixteen 
years in the consular service, I have found that the most satisfactory 
methods of promoting closer commercial relations between American 
exporters and foreign countries are for the consular officers to keep 
themselves in the closest touch with the business interests in their 
particular districts. 

It would be exceedingly difficult for an ambassador to obtain such 
commercial information as the business man of the twentieth century 
requires. He would be forced to depend u]3on reports, statistics, and 



PROMOTION OF TRADE IT^TERESTS. 43 

data gathered b}^ the country to which he is accredited, and often- 
times these documents are not officially printed and put into circula- 
tion until several years after the material to make them has been 
collected. 

It is certainly invaluable to a consular officer to have the kindly 
assistance of his ambassador in obtaining data from the ministries 
of the countries in which they are both stationed. My own ex- 
perience has been that such information is given with pleasure when- 
ever desired: in fact, the cooperation of the embassies and consulates 
has always been willingly given; whenever I have had occasion to 
ask for any information from any of them our relations have been 
very cordial. 

The condition of the crops, new industrial enterprises, the state of 
the markets, as well as the sources of supply and demand, and the 
news of what is going on, and the prospects of trade, can be obtained 
by the Government officer in the locality ; the man on the spot should 
be able to judge what is desired by the country he represents, and 
the public press, trade journals, commercial and industrial news will 
afford him immediate and accurate matter for reports on all subjects 
interesting his compatriots. 

The ambassadors could be of great assistance in pointing out the 
effects of laws and changes made in or by connnercial treaties, which 
are always enacted at the capital of the countr}^ where he has his 
residence. 

The best assistance and aid that can be given American consuls 
toward promoting and improving the trade relations between Amer- 
ica and foreign lands would be ample supplies of foreign commercial 
and industrial trade newspapers of all kinds, with the necessary 
facilities to collate and forward facts and data that will interest 
their countrymen. 

Walter T. Griffin, Commercial Agent. 

Limoges, August ^4? lOOIf. 



LYONS. 



I have received the circular, " Promotion of trade interests," and 
in response to the request for my opinions on the matters discussed 
therein, I have to say : 

I can see no limitation upon the usefulness of the consular service 
from lack of diplomatic status or difficulty in obtaining official infor- 
mation at first hand. There are no directh^ ministerial officers in 
Lyons, but the officers of the National Government, as well as local 
officials and all manufacturers and merchants, have received me 
readily whenever I have had reason to call on them in the discharge 
of my official duties. The requests I have from time to time ad- 
dressed to them for information have always been cheerfully com- 
plied with. 

Our consular service seems to me now to be well qualified to collect 
and to report to the Government any and all information demanded 
of a commercial or industrial character. 

In response to the matters spoken of in Section I of the circular, 
I would suggest: 



44 PROMCTION OF TRADE INTERESTS. 

I can see no advantage in having such dispatches as are sent to con- 
suls for trade statistics or for other information delayed in their pas- 
sage by stopping them at the embassy, unless there be there a com- 
mercial attache who would be especially charged with the duties of 
passing upon such dispatches. Such an officer, stationed in the capi- 
tal city, would soon acquire a large fund of information concerning 
the commerce and industry of the country which could not be pos- 
sessed b}^ the embassy, as now constituted, or by any single consul. 
Nor could the consuls scattered over the country obtain such general 
knowledge of the commercial situation, as a whole, as an officer 
located in the capital giving his entire time to the duties of his posi- 
tion. Such officer might also, with sufficient clerical help, assume the 
task of revising the consular reports sent to the Department of State, 
coordinating them and communicating with consuls, and asking sup- 
plementar}^ information such as would be suggested to him from 
perusing all the reports. After this, I think the original reports, as 
furnished b}^ the consuls, should be forwarded to the Governm.ent, 
and that the connection between the consular service and the Depart- 
ment of State should remain unchanged. I suggested, four years 
ago, and have since repeated several times, the advisability of having 
a commercial attache of our country at the American embassy in 
Paris. My reasons for this suggestion were that, in nine cases out of 
ten, when I appl}^ to a business man for information about his busi- 
ness, I have been informed that he represents some one in Paris. 
When I have endeavored to introduce some manufacture sent me by 
an American, I have been told that I must apply to Paris. This is 
applicable to almost every branch of industry. The principal busi- 
ness office is in Paris, and retailers here receive their supplies from 
that city or are direct agents for some Paris house. In Paris, also, 
are located agents for the great German and English houses, and it is 
there that a wide-awake commercial attache would have an oppor- 
tunity of learning and meeting the business methods of foreign coun- 
tries. 

With hardly an exception, the great nations of the world have mili- 
tary attaches at their foreign embassies. It seems to me that it would 
be of infinitely more service and substantial benefit to the country if 
a commercial attache were substituted for this military adjunct, which 
really belongs to a former generation rather than to the present. 
Frequent congresses are being held all over Europe for the considera- 
tion of matters of commercial and industrial importance which a 
commercial attache would attend, and Avhere he Avould be received 
with honor, and could, without doubt, obtain information of great 
use to the business interests of our common country. 

I should think that one commercial attache, stationed at Paris, 
could look after the interests of France, Switzerland, and Belgium. 

John C. Covert, Consul. 

Lyons, September 5, 1904- 



MARSEILLE. 



I have read with attention the Department's circular of Juh^ 29, 
addressed to the diplomatic officers of the United States, and in 
reply to 3^our request for my opinion thereupon, have to express my 



PROMOTION OF TRADE INTERESTS. 45 

approval of the purpose contemplated, although differing from the 
tentative suggestions as to ways and means. Briefly stated, I would 
reform the consular service and increase its effectiveness from within 
rather than from without. The facilities now controlled by con- 
sular officers for the collection of commercial information may be 
made to include all those controlled by diplomatic officers b}^ simply 
laying down rules governing the relations and reciprocal obligations 
of both bodies. As, a matter of fact, the diplomatic officers are 
generally most obliging in matters of this kind without any rules. 

The natural agents for executing the plan proposed by the Depart- 
ment are the consuls-general, wdiose present authority over the con- 
suls under them is m.erely nominal. The appointment of commercial 
attaches outside the consular service and exercising a degree of 
authority over the consular body would duplicate an existing mech- 
anism for furthering trade interests and very probably lead to 
friction. It is hardly probable that diplomatic officers could per- 
sonally review and recast consular reports submitted to them, and 
the delegation of these duties to their secretaries would be open to 
more serious objections than those raised against naming commercial 
attaches. 

Consular officers are custodians of papers and invoices covering 
every pound of merchandise exported to the United States ; they not 
only see the general trend of events, but are in direct contact with 
many of the details. This is a great advantage to them in carrying 
on any investigation, and one w^hich no special officer, however able, 
would enjoy. Consuls are familiar with their work and require 
only additional authority and clerical aid in order to take up with 
enthusiasm any new measures which the Department may desire to 
inaugurate. 

It is presumable that the discretion of consuls-general as to mat- 
ters likely to embarrass diplomatic officers would be at least as great 
as that of any special agent. In any case, it would be a simple 
process for such officers to lay before ambassadors and ministers a 
weekly list of topics under investigation, and to submit results for 
special review in all delicate matters. 

If various foreign governments have created a class of commer- 
cial attaches, it is because their consular organizations are unlike 
that of the United States. I have read man}^ comments in regard 
to the work of these attaches, and little of it has been favorable. 
They are so few in number, and cover such a vast field in each case, 
that their reports are of little practical value. Their studies of 
industrial conditions are more or less instructive as trade literature, 
but generally reach the public long after the occurrence of the events 
described. The work they accomplish may be left safely to the 
technical journalists. The rapid increase in the direct correspond- 
ence between American business men and their consuls abroad goes 
to show that our business interests want to feel that they have an 
ally in each large community abroad from whom they can procure 
reliable and conclusive facts in regard to specific matters. 

The Department has expressed itself with conviction in regard to 
the spirit of initiative now prevailing in the consular corps. If this 
spirit exists it is due largely to the freedom of restraint enjoyed by 
consular officers in their correspondence with the Department. 
Against this initiative is to be set a good deal of duplicate reporting, 



46 PEOMOTION OF TRADE INTERESTS. 

occasional looseness of statement, and something of a disposition to 
report the m.erel}^ interesting rather than the important. If reports 
as at present prepared are to be filed with the Department, accom- 
panied by notes and amendments proposed by a supervising officer 
abroad, then the Department will either have twice as much matter 
to read and edit as at present, or else the foreign supervision will 
degenerate into an empty form. I am inclined to suggest clothing 
the foreign supervising officer with a considerable amount of real 
authority to harmonize and complete reports, trusting to his tact and 
intelligence to keep alive the activity and alertness of the consuls 
under him, while at the same time securing those advantages which 
the Department seeks. 

Egbert P. Skinner, Consul- General. 

Marseille, September 1^ 190 Jf. 



NANTES. 



I have the honor to acknowledge receipt of your circular communi- 
cation of July 29, addressed to the diplomatic officers of the United 
States relative to the " promotion of trade interests." You instruct 
me to transmit to the Department an early expression of my views 
on this subject, and I have, therefore, the honor to report that, during 
a long and active experience in the consular service in Switzerland, 
Spain, and France, I have never, at any time, had the least difficulty 
in securing any commercial or statistical information that was avail- 
able in either of the countries mentioned, and I have never, at any 
time, found the lack of a consul's diplomatic status a hindrance in 
securing such information. Moreover, I have never, at any time, 
found it necessary to call upon our ministers or ambassadors to aid 
me in securing such information, though I have no doubt if I had 
done so the desired assistance would have been at once cheerfully and 
effectively accorded. 

In the circular communication of July 29 you observe that the 
spirit of initiative is one of the most valuable features of the work of 
the American consular corps. Nothing could be truer than this. 
It is the strong individuality of our consular reports that has served 
to make them interesting and valuable. Our consuls have not only 
been permitted but encouraged to present their own ideas in their 
own way; they have felt that they were appreciated at the Depart- 
ment of State, and the fact that they have thus been permitted to 
communicate directly with the Department has had at all times a 
stimulating effect. If, therefore, the Department wishes to preserve 
the spirit of initiative and individuality in consular work, I am not 
sure that this would be accomplished if the consuls were required to 
submit their work to our diplomatic agents with the knowledge that 
these officers would edit and annotate their reports, and perhaps even 
refer them to others for revision and elimination. 

In so far as my own experience goes, I think our present system of 
consular work is at once practical and effective. Of course, if there 
are countries where consuls are unable, through their lack of diplo- 
matic status, to secure desired statistics and other commercial infor- 
mation, it seems to me that our diplomatic representatives in those 



PROMOTION OF TRADE INTERESTS. 47 

countries would not hesitate to aid them in such instances, particu- 
larly if instructed to do so by the Department of State. My own 
belief is that the consul accomplishes his most interesting and valu- 
able work through personal observation. By looking carefully about 
him, by reading the commercial papers at home and abroad, and by 
otherw'^ise personally looking out for business opportunities, he gets 
information and ideas of practical value which he likes to transmit 
directly to the Department of State, with the idea of getting full 
credit for his work. 

I have also given some thought to the question of so-called " com- 
mercial attaches " in certain countries, but I do not see how any such 
officer would be of particular assistance to the consular service in 
France, Spain, and Switzerland, the only countries in. which I have 
had any experience. 

As a matter of fact, since you have instructed me to express my 
opinion in the premises, I believe the commercial interests of the 
comitry will be best and most effectively served when intrusted to an 
experienced consular corps, working under the direct instruction of 
the Department of State. When there is necessity for new commer- 
cial treaties or for the revision of old treaties, then, it seems to me, 
the diplomatic agents should be instructed to consult principal con- 
sular officers, but ordinarily — I repeat that — in so far as commercial 
reports are concerned, I believe the consular corps w^ill do better work 
when acting independently under direct instructions from the De- 
partment. 

Benj. H. Ridcely, Consul. 

Nantes, August 23^ 190Jf. 



NICE. 

With reference to the promotion of trade interests, my experience 
has been that, during the past few years, the exigency of our mer- 
chants and manufacturers in making inquiries with the Adew of ex- 
tending their trade has vastly increased, and in many cases — in fact, 
in most cases — the inquiries are such that a satisfactory and complete 
statement in reply would constitute a special report. The same state 
of things must of necessity exist in all the principal consulates. 

I do not think that a consular officer speaking the language of the 
country to which he is accredited and maintaining the proper rela- 
tions with the different authorities need encounter much difficulty in 
obtaining official information. I think that difficulty is more likel}^ 
to arise with regard to details and particulars touching commerce and 
trade of a nonofficial character. But even here, I think that patience 
and tact produce a favorable result. 

The extent, however, to which inquiries on commerce and trade are 
now being made, the present status of our consular service with re- 
gard to its personnel, and the rapid development of our export trade 
(and it is, in my opinion, still in its infancy) would certainly seem to 
indicate that the addition of commercial attaches to our embassies 
and legations, charged with the task of preparing special reports on 
commerce and trade of a complete and exhaustive character, would 
result in very great benefit to our commercial expansion. It is a mat- 
ter universally conceded that never has any consular service any- 



48 PROMOTION OF TRADE INTERESTS. 

where afforded such vahiable aid to the development of the export 
trade as the American service during the past few years, but this de- 
partment of consular work can reach its maximum of coordination 
and thorough usefulness only by means of such an adjunct as would 
be afforded by a properly constituted commercial department, en- 
abled to give all its time and energy to this special branch. 

As to the consular officers of other countries accredited here, I may 
say that the demands made upon them in the way of special trade re- 
ports are practically nil. It may be added that it would also appear 
to be the general opinion that such work is not, strictly speakings 
" consular," and the replies to trade inquiries are, I think, confined to 
the mailing of reports of chambers of commerce or to the recommen- 
dation to apply to firms for the information required. 

The establishment of cominercial departments at embassies and 
legations would, I am convinced, open up a prodigious amount of 
labor. Our manufacturers are far removed from foreign markets, 
and have little or no knowledge as to which markets or which goods 
the}^ have to compete with. Their inquiries are such that a matter 
has to be investigated, so to speak, from A to Z, whereas our competi- 
tors in trade, nearer by, already have the knowledge afforded by their 
proximit}^, by time, and experience. This department of the consular 
service, useful as it may be at present, will of necessity always be 
desultory in its character, depending entirely upon the competency,, 
ability, and activity of this or that individual. 

Attilio Piatti, 
Vice- Consul in Charge, 

Nice, August 22, WOIf. 



KHEIMS. 



In conformity with instructions in circular dated August 4, request- 
ing an expression of views relative to circular dated July 29, to 
American diplomatic officers in regard to devising a plan for the 
improvement of existing facilities for the collection of commercial 
intelligence, I have the honor to observe that, in my opinion, any plan 
that would enable consular officers to get information at first hands 
would be excellent in itself ; ancl any method that would systematize 
the work to be done and prevent, for example, two consular officers 
from doing exactly the same thing and reporting the same informa- 
tion, would result in a great saving of labor and be conducive to the 
accomplishment of much greater results. 

If the plan indicated by the Department circular can be perfected 
and put in execution, it would seem to be an excellent arrangement. 
If a central bureau of commercial information could be established at 
the embassy or legation of the United States at the capital of the 
foreign country, working in harmony with the consulates therein, 
under the supervision of the diplomatic officer, and with a comp^ent 
head who could give all his time and energ}^ to the collection of trade 
intelligence, and Avho would have the advantage, by means of his 
connection with the embassy or legation, of getting information at 
first hands, it would be certainly a great improvement over the pres- 
ent manner of isolated action. 



PROMOTION OF TRADE INTERESTS. 49 

The advantages of a central bureau Avould be many. Its chief 
would be furnished with all the official statistics of the foreign gov- 
ernment as they appear, and his office would soon be so Avell supplied 
with these and with other intelligence that he would know just where 
to apply for any particular information desired. Many reforms 
would doubtless suggest themselves from time to time. For example, 
much time is taken at all consulates in replying to circular letters 
from trade journals, business firms, and individuals soliciting lists 
of names and addresses of merchants and dealers in different lines of 
trade. If a small business directory should be prepared under the 
direction of the central bureau from information obtained from the 
various consulates, containing the names of principal merchants and 
dealers in different lines in the cities and large towms of the country, 
and if these directories, which could be revised from time to time, 
should be sold at cost or given away to applicants for such informa- 
tion, a great deal of time and labor would be saved. 

But the greatest advantage would be, no doubt, in having the 
central bureau of commercial statistics and information at the 
capital of the foreign country, with a competent chief in charge, who 
would be at liberty to give all of his time to the work, and who, by 
virtue of his official connection, would have much greater facility in 
obtaining accurate and complete information than the consular serv- 
ice unaided. 

William A. Prickitt, Consul. 

Kheims, August 25. 190 Jf. 



ROUBAIX. 



I have the honor to acknoAvledge the receipt of Department cir- 
culars concernins: the promotion of trade interests dated, respec- 
tively, July 29 and August 4, 1904. 

I have great hesitancy in expressing views which may be regarded 
by the Department as erroneous. The opinions advanced, however, 
are based upon my estimate of the temper of the community over 
which I have had consular jurisdiction for a number of years. 

It would seem to me that the active and open cooperation of the 
diplomatic branch of our service with our consular officers in their 
work of protecting and advancing commercial interests, work which 
by the force of circumstances must be largely done in detail to be 
effective, would rob the diplomat of a certain degree of his prestige 
and curtail his influence in the Avider field of diplomacy. 

The effective aid now rendered to American commerce by our con- 
sular officers is looked upon in France with increasing apprehension. 
Information of a nature to build up our commerce is more jealously 
guarded than when competition was less active, and it is probable 
that the establishment of such relations between the diplomatic and 
consular branches of our service, as outlined in Department circular 
of July 29. would defeat the object which it is intended to serve. 

At present, information refused to a consul is frequently accorded 
to a diplomatic representative as a courtesy. Should American 
diplomatic officers become known as instigators and directors of 
commercial investigation, it is to be feared that they would soon be 

H. Ddc. 245, 58-3 4 



50 PROMOTION OF TRADE INTERESTS. 

met with the same courteous assurance of aid and the same non- 
fulfinment of promises that so frequently prove a stumbling block to 
our consuls. 

The inabilit}^ of the consul in France to furnish full and correct 
statistics arises not from the fact that access to statistics is denied 
him, but from the fact that statisics, at least in this district, are not 
correct. This fact was ably set forth in the French Chamber a num- 
ber of years ago by Mr. Eugene Motte, present mayor of Eoubaix, a 
deputy m the French Chamber, and one of the most influential manu- 
facturers in this district. 

It is possible that statistical bureaus charged with the revision of 
consular statistical reports might be created under the supervision of 
the diplomatic corps with advantage to the service. 

W. P. Atwell. Consul. 
RouBAix, August 22^ 1904. 



ROUEN. 



With reference to your circular of August 4 last, in regard to the 
capabilities of the diplomatic service for "the promotion of our trade 
interests, I have the honor to submit my response, which, I regret, is 
retarded on account of the confusion occasioned by the removal of 
this consulate to new quarters. 

My opinion, whatever it may be worth, as the result of the four 
years of my consular experience and the study of xVmerican trade in- 
terests, is decidedly in favor of such an innovation, which, far from 
destroying the spirit of initiatiA'e of the consular corps, would only 
add to its determination and zeal — at least that part of the corps 
which has the advancement of American trade at heart. It would 
gladly welcome any innovation that would help along the good cause 
in which consuls are engaged, not thinking of individual honor so 
much as American and American-trade honor. 

There is no doubt about it, or at least I have found it so in my ex- 
perience, that a consul, often through fear of a breach of etiquette, 
commits sins of omission for which, unhappily, American trade suf- 
fers, and it is possible that there are consuls who, in their zeal to 
carry out to the full every departmental instruction, commit sins of 
commission. For such sins, American trade also suffers. Both these 
eAdls of omission and commission could be remedied by the status and 
broad knowledge, respectively, of the diplomatic service. 

It is easy to see that, for successful competition, the best merchant 
leaves no stone unturned, and the rule applies to nations, especially at 
the present time, when " the extension of coimnerce, in its many forms, 
with a multitude of subsidiary interests, has admittedly become one 
of the chief aims of world diplomac3^" 

Certainh^, the greatest improvement, outside of the establishment 
of the Department of Commerce and Labor, in the advancement of 
American trade was the beginning of the daily publication of the 
consular reports in January, 1898 ; but if the great cajDabilities of the 
diplomatic service could be brought into cooperation with existing 
facilities for the collection of commercial intelligence, there would 
be an improvement in accuracy and an extension of information 



PROMOTION OF TRADE INTERESTS. 51 

which would, in the development of our commerce, equal, if not sur- 
pass, the elimination of dela}^ accomplished when the daily reports 
came into existence. 

There may be diplomatic officers who would object to such an in- 
novation as affecting the dignity of the service. I met a consul of a 
foreign power not long since who remarked that he considered him- 
self above tradespeople, and that certainly his office should not be a 
servant of them. If a foreign consul thought that, would an Amer- 
ican diplomatist think so? The most excellent reports published 
from some of them would seem to ansT^er negatively, and to give as- 
surance that they w^ould be glad to aid their country in the great 
trade struggle. Sureh^ a diplomatic officer is as much an ambas- 
sador of trade as an ambassador of any other interest and should be 
the guardian of his country's commercial concerns as well as of its 
other requirements. 

TiiORN^VELL Haynes, Consul, 
RouEx, Septemher 20, 190 J^. 



ST. ETIENNE. 

Pursuant to instructions contained in circular dated August 4., I 
have the honor to submit the following memorandum on the subject : 

The proposition to utilize the diplomatic service for the promotion 
of trade interests will meet, without a doubt, the unanimous approval 
of consular officers of experience. 

That the diplomatic service, as at present constituted, can not un- 
dertake to act as a commercial agency is also evident, and the plan 
for establishing commercial attaches at the more important capitals 
seems to be well conceived. 

That such attache should be a part of the staff of the legation or 
embassy rather than that of the consulate-general would seem advisa- 
ble for the reason that, in the former case, the attache would have the 
benefit of at least a quasi-diplomatic standing, by virtue of which 
access to government departments and bureaus would be facilitated. 
Such being the case, the commercial attache would not only be in a 
position to consolidate, verify, and supplement a certain class of 
consular reports, but, reciprocally, might easily be an invaluable aid 
to consuls, preparing special reports, who frequenth' find themselves 
in lack of pertinent information or statistics which are obtainable 
only at the capital. This latter suggestion is especially applicable 
to France, where there is but one adequate source of information, be 
it general or particular, and that is Paris. The custom-house at St. 
Etienne, for instance, can not give more than an approximate esti- 
mate of the imports and exports of the St. Etienne district, seeing 
that a large volume of the business passes through other custom- 
houses. Much less can the business of the consular district be esti 
mated. 

The consular invoice book shows approximately three- fourths of 
the value of silk ribbons exported from St. Etienne to America ; the 
rest (one- fourth) are invoiced at Paris, and the totals of this com- 
merce can not be found elsewhere than in the proper bureau of the 
ministry of commerce at Paris, to which local consuls have no access 



52 PEOMOTION OF TRADE INTERESTS. 

except at great inconvenience and by special favor. Thus it may be 
seen that, Avhile a commercial attache would have important duties, 
exclusively his own, to perform, and others in which he would be 
materially aided by the consular service, he would at the same time 
be able to render invaluable service to themdn the way of increasing 
the accuracy and completeness of reports pertaining" to their local 
districts. 

While the headquarters pf a commercial attache should be with the 
legation or embassy at the capital, he should by no means be prohib- 
ited from extending his investigations to the limits of the diplomatic 
jurisdiction, and in this work again the consular service would render 
its assistance to their mutual benefit and the promotion of trade 
interests. 

There are other favorable comments which might be made and 
perhaps some objections; there may be even difficulty in securing 
a satisfactory personnel for posts where the requirements are so 
exacting, but in principle I can not too heartily indorse the " at- 
tache " proposition, and I believe that, once the system is in working 
order, the results will amply justify the undertaking. 

Hilary S. Brunot, Consul. 
St. Etienne, August 30, 190^, 



";f?(% 



oerma:^y. 

Report from the Embassy. 



Embassy of the United States, 

Berlin, Octoler 7, 1904. 

I have the honor to acknowledge the receipt of your circular in- 
struction of July 29 last, requesting me to prepare, for the information 
of the Department, a memorandum upon the capabilities of the diplo- 
matic service for the promotion of our trade interests in Germany. 

In reply, I have the honor to inform you that, as but few of the 
inquiries now sent to consular officers have come under my notice, I 
have only an incomplete knowledge of the sort of inquiries which would 
be made from time to time b}^ the Department. Nevertheless, I do 
not believe that the staff of this embassy, on account both of its small 
numbers and lack of technical commercial knowledge, would be capa- 
ble, without additional assistance, of performing the programme 
described under question 1 of your instruction. I have little doubt. 
however, but that, if some proper technical person were attached to 
this embassy, he could, in the nianner indicated, greatly aid consular 
officers in answering inquiries and add value to their reports upon 
these inquiries when once made. -: :. 

Undoubtedly, very much would depend upon the person chosen, who 
would have a position of some difficulty. Commercial customs in 
Germany, as well as the character of the German people, are, of 
course, utterly different from such customs in the United States and 
from the American character. Notwithstanding this, a commercial 
attache's usefulness would be much lessened and his position made 
exceedingly difficult if he was a naturalized German or of German 
parentage. V Reticence and formality in commercial as well as other 



PEOMOTION OF TRADE INTERESTS. 53 

matters are far greater in Germany than in the United States. A cer- 
tain amount of suspicion often exists when foreigners, and especially 
foreign governments, make inquiries of a commercial nature. I may 
say that, owing to the enormous increase of American exports to Ger- 
many, this is probably especially true in regard to Americans. A 
commercial attache to this embassy would, therefore, need much tact, 
coolness, and capacity for fair and unprejudiced judgment. I be- 
lieve that, for such a commercial attache to have a maximum amount 
of usefulness, he should be a man of some practical business experi- 
ence, as well as some scientific commercial training. At least, a fair 
knowledge of German w^ould be indispensable to him. 

A man so qualified would have, in many ways, great advantages 
over consular officers, since he would be able easily to get at all the 
commercial publications of the German Government (a great many 
of which can not be accessible to, at all events, most consular officers) , 
and to get information from the central Government departments, 
either by written communications from the embassy or directly by 
conversation. The commercial society of the capital would afford 
him another and a valuable means of acquiring information. The 
governmental and diplomatic society in Berlin is strictly divided 
from the commercial, and undoubtedly if he is to get the best results, 
the commercial attache should associate as much as his time will 
allow with the commercial societ}^ Through such purely social in- 
tercourse, he would be able often to o^et or to establish the means of 
getting information impossible or difficult to procure in other ways. 
I do not think, however, that a proper commercial attache would find 
it at all impossible to fulfill the few really necessary social duties 
incumbent upon him as a member of the corps diplomatique and also 
to make a wide circle of useful social connections among the com- 
mercial society. 

I believe that, through such a position, a commercial attache would 
have a great value, not only through technical knowledge, but through 
his being able to take a broader and often a more correct view of 
commercial affairs. Having such facilities for observation, I would 
suggest that he should also, with the approval of the ambassador, be 
allowed to initiate inquiries when he saw fit to do so. 

According to your circular, the reports of consular officers are only 
to be annotated or supplemented, their text being left intact. This 
would, I consider, obviate one of the principal faults alleged against 
the German commercial attaches, namely, that their reports, which 
are entirely written by themselves, are often too technical and ab- 
struse and more valuable to the student than to the merchant. 

Finally, the services in a consultative capacitv of a commercial 
attache would often be valuable to the embassy m cases which fre- 
quently arise where technical commercial knowledge is realh^ re- 
quired. 

I do not think that the addition of a commercial attache, with such 
functions as are specified in your instructions, would cause any em- 
barrassment to the embassy in its relations with the German Govern- 
ment. Of course, I assume that the commercial attache would, in all 
he did, be entirely under the supervision and authority of the ambas- 
sador, to w^hom entire discretion would be given even to defer taking 
any action wherever he saw fit until after he was able to place his 
reasons for this before the Department and obtain its decision. All 



54 PEOMOTION OF TRADE INTERESTS. 

the diplomatic missions at this capital have, as part of their regular 
duties, the collection of commercial information to a greater or less 
extent, and several of them have regular commercial attaches. These 
attaches are allowed to correspond with the consuls of their country 
and to receive reports from them, which they then utilize in prepar- 
ing reports of their own. So far as I have been able to learn, no sys- 
tem such as that proposed under question 1 of your instruction exists 
in aiw mission in Berlin, but what is practically very much the same 
thing, from this point of view, does take place as is above stated, 
though perhaps to a lesser extent. 

Regarding the information called for by question 2 of your instruc- 
tion, I have the honor to inform you that 1 have had a conversation 
with one of the members of the imperial foreign office, from Avhom I 
have learned the following facts : 

There is no such cooperation between the diplomatic and consular 
services of Germany as that outlined in question 1 of your instruc- 
tion. 

The German Government has no industrial attaches, but it has com- 
mercial attaches and agricultural attaches. The former were first 
instituted in 1893, when, on account of the Chicago Exposition, a 
commercial attache was sent to Chicago, where he was attached to 
the German consulate-general. Since then, at various times, other 
commercial attaches have been appointed, so that at present there are 
eight in all, attached, respectively, to the consulates at New York 
(where he was moved from Chicago), Buenos Ayres, Valparaiso, 
S3^dne3^ Shanghai, Pretoria, Constantinople, and St. Petersburg. 
Two more are contemplated, one in the United States and the other 
in India. These attaches, being attached to consulates, have no 
diplomatic status. In appointing them, it is the rule to avoid taking 
men from any Government service, the idea being that they shall not 
be " bureaucratic." Their choice rests entirely with the foreign office, 
which sometimes consults with the imperial department of the inte- 
rior, the commercial section of which is virtualh^ an imperial depart- 
ment of commerce. Either men Avho have especially devoted them- 
selves to economic or commercial studies, secretaries of chambers of 
commerce, or business men are chosen, without any especial examina- 
tion. Unlike the members of the dijDlomatic and (professional) con- 
sular services, they are not considered as belonging to a regular serv- 
ice in which they will spend all their Avorking A^ears and then retire 
with a pension. Commercial attaches are engaged by contract, made 
with them individually by the foreign office and providing gener- 
ally for three years' employment, at the end of which they are at 
times reengaged for another three years and at times superseded by 
other men^ It is in some cases considered beneficial to have a new 
man, who will perhaps be able to correct and supplement his prede- 
cessor's reports. Commercial attaches, though attached to a particu- 
lar consulate, can be transferred to any other consulate at any time. 

For defraying the salaries and expenses of commercial attaches, 
the Reichstag provides annually a lump sum, which is placed at the 
disposal of the foreign office and which is used for this purpose, but 
entirely at its discretion as to choice, number, posts, etc., of commer- 
cial attaches. In practice, however, it m.ust be said that information 
upon these subjects is usually furnished by the foreign office to the 
budget committee of the Reichstag. 



PROMOTION OF TRADE INTERESTS. 55 

The salaries of commercial attaches vary acording to their posts, 
beino' 22,000 marks ($5,236) at New York, 19,000 marks ($4,522) at 
Shanghai. 15,000 marks ($3,570) at Constantinople, 21,000 marks 
($4,998) at Buenos Ayres, 15,000 marks ($3,570) at St Petersburg, 
18,000 marks ($4,284)" at Valparaiso, 18,000 marks ($4,284) at Syd- 
]iey. and 20,000 marks ($4,760) at Pretoria. At some consulates, the 
commercial attache is given an office in the consulate. He is fur- 
nished with stationer}^, and is allowed to purchase small articles, as 
books, etc., which may be necessary for his work, and for which he is 
reimbursed upon furnishing vouchers at the end of each year or at 
the end of his employment. He is further allowed a certain (vary- 
ing) mileage -when he travels in the course of his duties, and (in the 
United States) $6 per day for living expenses when traveling. 

The commercial attache's duties are to make reports to the foreign 
office in regard to commercial matters, not merely in the district of 
the consulate he is attached to, but in the whole country in which he is. 
He is also expected to answer, so far as he can, the inquiries upon 
commercial subjects of German corporations or individuals. Fur- 
ther, he is obliged to keep a diary, in which a daily entry is made of 
all his reports, letters, and other work. At the end of each year, this 
is forwarded by him to the foreign office in order to show what he 
has done. 

The instructions to commercial attaches of the foreign office are 
addressed simply to the consulate, the attache's name only being 
mentioned in the inclosed dispatch. This is so that they shall be 
opeaied and read first by the consul. The commercial attache should 
also theoretically always submit his reports to the foreign office to 
the consul, who is not allowed to change them, but he may accompany 
them by a report of his own. Commercial attaches may correspond 
vrith all consuls in the country or with the embassy or legation, and 
these are all obliged to lend them their aid in so far as may be prac- 
ticable. They have, however, nothing to do with the reports of 
consuls (unless called upon for advice), who, if professional consuls, 
report directly to the foreign office, and if only honorary consuls 
report to the consul-general of their districts. 

The reports to the foreign office of commercial attaches, except 
sucli as are considered confidential, which are, in cases, communi- 
cated to the chambers of commerce, are published, as well as all other 
commercial information of the Government, in the publication en- 
titled '' Deutsches Handels-Archiv," wdiich appears at irregular in- 
tervals. The more important reports are published sometimes in 
abridged form in the smaller monthly Handels-Berichte. Other re- 
ports are ])ublished in the Berichte uber Handel und Industrie, a 
small publication, which appears irregularly, while short commer- 
cial notes of more immediate importance, often furnished by commer- 
cial attaches, are published in the weekly Nachrichten von Handel 
und Industrie, which is modeled after our own Daily Consular lie- 
ports. All of these publications are issued by the imperial depart- 
ment of the interior, to which, after they have been read and used so 
far as desirable by the foreign office, they are referred. 

It may also be of interest to add some facts regarding the agricul- 
tural attaches already mentioned. These are stationed at Copen- 
hagen, St. Petersburg (where there are two), Bucharest, Chicago, 
Xew York, I^ondon, and Sydney, and are all attached to consulates, 



56 PROMOTION OF TRADE INTERESTS. 

except the one at Bucharest, who is attached to the legation. They 
are appointed in the same manner and receive about the same salaries 
as the commercial attaches. 

The agricultural attache, however, is expected and has to show 
that he has traveled at least three months in each year. For this he 
is allowed an additional sum of 6,000 marks ($1,428). Usually, 
scientific foresters or specialists in agricultural subjects are chosen 
fpr agricultural attaches. For the rest, the same rules apply to them 
as to commercial attaches. 

H. Percival Dodge, Charge. 



Opinions of Gonsvls- general. 

BERLIN. 

In compliance with that portion of Department circular of August 
4, " Promotion of trade interests," which requests an expression of 
the view of consular officers concerning the plan outlined in its cir- 
cular of July 29 to the diplomatic officers of the United States, 
whereby it is proposed to render the diplomatic service more active 
in the promotion of American trade interests, I have to respectfully 
report as follows : 

While the plan proposed by the circular of eluly 29 would be 
doubtless effective and valuable in many countries — for example, 
Mexico, China, Japan, Brazil, and other South American nations — 
where the consulates are less numerous and less fully equipped, and 
where the traditions of diplomatic caste and usage are less rigidly 
established, it is an open question whether such a system would be 
effective in a 'country like Germany, where the line between diplo- 
matic intercourse and ever3^thing relating to trade is sharply and 
relentlessly drawn. Some years ago, the United States Government 
sought to bridge this chasm by accrediting to several European 
governments officers with the dual character of ministers resident 
and consuls-general. The plan failed, for the reason that such 
officials were not recognized as diplomatic, but simply as consular 
officers. It was then declared impracticable to " mix diplomacy 
and commercialism," even in the secondary capitals of Europe, 
and the same would, in my opinion, happen again if embassies like 
those at Berlin, Vienna, and St. Petersburg were to be invested with 
the duties outlined in the pending proposition. 

Leading European governments evade this dilemma by accrediting 
to their embassies so-called " commercial attaches," who make long 
academic reports on abstruse statistical and industrial topics, but 
who, if the complaints of their own countrymen are to be believed, 
manifest only a languid and condescending interest in everyday com- 
mercial affairs, and. render little or no practical service to real trade. 

The question is, therefore, at what points such supplementary 
assistance is needed in the service of the United States? Speaking 
only for German}^, I venture to believe that the interests of American 
export trade are already well and efficiently represented by the 
consular service as at present constituted. For example, there are 
published in the last monthly number (285, for June, 1904) of Con- 



PROMOTION OF TRADE INTERESTS. 57 

sular Eeports 97 reports on commercial, industrial, scientific, and 
economic subjects from consular officers in German}^ These reports 
are recognized here, as elsewhere, as being generally, in a high degree, 
prompt, clear, practical, and useful to manufacturers, exporters, 
and to the general public. They are copiously translated and repub- 
lished in this countr}^, and I have been frequently told by Germans 
of high intelligence that they watch the United States consular 
reports for original and valuable information about their own 
countr}^ which they can not obtain elsewhere. It is respectfully 
submitted that if the merchants and manufacturers of the United 
States would utilize and work up the information, the suggestions, 
and practical assistance now offered to them by the consular corps 
in Germany this field of export trade would be fully and efFectively 
covered. 

In the few instances wliere consular officers here need statistics and 
other official information which can only be obtained through a dip- 
lomatic channel, our embassy in Berlin has always been most prompt, 
considerate, and obliging in giving the desired assistance, and in my 
opinion, speaking only for Germany, this is its proper and most effect- 
ive attitude and relation to the whole subject. To impose upon the 
embassy the additional duty of revising and annotating consular re- 
ports would, in my judgment, not only entail ne(5dless labor on the 
part of the working force in that office and cause delays in transmis- 
sion out of all proportion to the advantages which would be secured 
by such censorship, but would chill and restrict the spirit of initiative 
which is now one of the exceptional and most valuable attributes of 
our consular corps and which ought to be by all proper means encour- 
aged and maintained. There are certain subjects the treatment of 
which requires statistics and other materials difficult of access to con- 
sular officers without diplomatic status. Such topics should be as- 
signed by the Department directly to embassies and legations instead 
of to consulates, but in my opinion, no permanent advantage can re- 
sult from an attempt to combine or mingle the functions of the tw^o 
classes of officials by further subordinating one service to the other. 

No traditions are more rigidly conservative than those which gov- 
ern diplomatic usage in a capital like Berlin, and there can be no 
doubt that the standing of an American ambassador, both in respect 
to his colleagues and the sovereign to whom he is accredited, would 
be compromised and impaired by the knowledge that he has been for- 
mally charged with the duty of making commercial propaganda for 
the United States. 

Frank IT. Mason, Consul- General, 

Berlin, August ^7, 190J^, 



COBUKG. 



In reply to the circular of August 4, '' Promotion of trade inter- 
ests," requesting an expression of my views, I would respectfully 
state that, although my residence and experience as a consular officer 
in a large manufacturing and exporting or commercial country such 
as Germany has been limited (my position as United States consul at 
Dawson not having been in such a country), it has, nevertheless, been 
long enough to bring, to my attention the difficulties experienced by 



58 PROMOTION OF TRADE INTERESTS. 

consular officers from lack of diplomatic status, in obtaining official 
or other information concerning trade matters at first hands. 

This hindrance would, in my judgment, to a great extent be over- 
come of the consular officer could have the assistance of the Amer- 
ican legation or principal diplomatic officer in the country to which 
he is accredited in ol^taining the same. This aid ]night be extended 
to such consular official through the medium of a diplomatic repre- 
sentative, to be known as a '' commercial attache," as referred to in your 
circular. In foreign countries, such as Germany, official and social 
position counts for a great deal and opens to a diplomatic officer many 
avenues of information ccncerning official, trade, and other life of the 
empire which to a consular official are closed. By reason of this the 
latter official is placed at a great disadvantage and his sphere of influ- 
ence is much curtailed. Friendly social relations of a public officer in 
a foreign country ^vith the public officials of the country to which he 
is accredited general^ bring such official directly or indirectly in 
contact with the manufacturing and commercial life of the country, 
and, comparatively speaking, make easy the task of obtaining valu- 
able information concerning it. These relations a public foreign 
official lacking a diplomatic standing finds it most difficult, if not at 
times impossible, to bring about. 

I am fully awar§ of the great strides the United States has made in 
its export trade and of the fact that its consular service has rendered 
valuable aid in bringing about the happ}^ result which, as stated by 
the circular, has led to its '' imitation and emulation " by the more 
prominent industrial nations; but the very fact that the consular 
service has rendered such aid has caused the movements and inquiries 
of its officials accredited to foreign industrial nations to be closely 
watched by the public officials, manufacturers, and tradespeople of 
foreign countries, resulting in jealousy on the part of such manufac- 
turers and tradespeople toward our manufacturers at home and in the 
closing of many avenues of information former Ij' accessible to consu- 
lar officials. This difficulty could and A^ould, in mv judgment, to a 
very great extent be obviated if part of the work now assigned to the 
consular officials was delegated to the diplomatic service and per- 
formed through the medium of a representative thereof, to be known 
as a " commercial attache," clothed Avith powers similar to those dele- 
gated to the confidential agents of the United States Treasury De- 
partment stationed abroad. 

I might state that my first experience here as a consular official, in 
my efforts to procure information for an American manufacturer 
concerning the manufacture of German automobiles, convinced me of 
the necessity of our Government making some radical changes in the 
manner of enabling its consular officials to obtain information on 
industrial subjects. My experience was found in an effort to obtain 
from manufacturers of German automobiles trade circulars or pam- 
phlets of their machines and goods, either by. writing them directly 
in my official capacity or as an individual, requesting copies of the 
same, or through the medium of a person in the consulate and 
through the letters of friends. The result of such effort was that all 
of lYij requests as an official or as an individual met with no reply, 
those of employees with a like result, while of those of friends but 
few were complied with. The keen competition of our American 
manufacturer has made the German manufacturer very suspicious of 



PROMOTION OF TRADE INTERESTS. 59 

inquiries from Americans concerning indnstrial affairs, he recogniz- 
ing the fact that they are his greatest trade competitors. 

In conchision. I would state that I am of the opinion that to per- 
mit the diplomatic officer to rewrite a consular officer's report in case 
it should be. in his judgment, erroneous, or to amend or suppress the 
same, in whole or in part, would, as you indicate in your circular, 
create friction with the consular service and destroy the spirit of 
initiative. Such commercial attache should be at the disposal of the 
consular officer, upon request by him to the principal diplomatic 
officer, when such consular official is directed by the Department of 
KState to make a report upon a subject for which he needs such aid, 
the report thus called for to be transmitted to the Department of 
State through the 2:>rincipal dij^lomatic officer, subject only to his 
revision, with annotations indicating errors of fact or judgment: all 
eliminations of parts or portions thereof to be made by the Depart- 
ment of State, and the annotations made b}^ such diplomatic officer to 
be merely for the guidance of said Department in its final disposition 
of the report. 

Hexry D. Saylok, Consul-General. 

CoBURG, August 26, 190 J^. 



FKAXKrORT. 

In reply to Department's circular instruction of the -l-th instant, 
transmitting copy of a circular addressed to American diplomatic 
officers in regard to the promotion of trade interests and requesting 
an expression of vievx^s on the subject, I have the honor to submit the 
following : 

In my opinion this plan for securing increased cooperation between 
diplomatic and consular officers in the matter of collecting commer- 
cial information for the benefit of American manufacturers and 
exporters is both timely and practical. It is undoubtedly true that 
very often the diplomatic representative alone has facilities for 
obtaining information covering an entire country. Furthermore, it 
is also true that when many consuls in one and the same country are 
called upon to prepare individual reports on a given subject, such 
reports must naturally often consist of very similar matter, the con- 
densation of which in a systematic manner would certainly increase 
the value to our exporters of the information thus laboriously gath- 
ered by our consuls. 

It therefore appears to me that when the Department deems it 
advisable to call upon a number of consuls in the same country to pre- 
pare separate reports covering their individual districts, the work 
could be accomplished more methodically and the information com- 
municated to our manufacturers and exporters in much more conven- 
ient and intelligible form if it were condensed into a single report in 
which repetitions Avere avoided, errors corrected, and the matter 
arranged in a systematic and orderly way. The work of a compiler 
of commercial information in an embassy could, moreover, be consid- 
erably lightened and facilitated by requiring consuls to send their 
reports to the supervising consul-general, in order that he might 
have an opportunity to examine them carefully, call attention to mis- 
takes, add new matter for the purpose of making the information 



60 PROMOTION OF TRADE INTERESTS. 

more complete, and then prepare a memorandum for the assistance of 
the compiler in the embassy. Of course, for their encouragement, due 
credit should be given to the various consuls contributing to such 
reports. 

Any plan for improving our facilities for gathering useful conmier- 
cial information and presenting it to our exporters in the best possi- 
ble form may considerably increase the clerical work at some of our 
diplomatic and consular offices, but the matter is one of such great 
and urgent national importance that in my opinion it would be an 
exceedingly good investment for the Department of Commerce and 
Labor to incur the comparativeh^ small expense thus necessitated. 

I venture to suggest that, so far as Germany is concerned, our 
export trade might be very much helped by stationing a commercial 
attache in the embassy at Berlin, and by also stationing in the con- 
sulates-general at Berlin and Frankfort commercial experts subor- 
dinate to the commercial attache at Berlin. As the other constilates- 
general in Germany have no supervisory duties, their reports could 
be forwarded directly to the commercial attache in the embassy. 

With a similar object in ^dew. namely, the extension of Germany's 
export trade, the German Government has found it profitable to sta- 
tion commercial experts in certain German diplomatic and consular 
offices where it is believed that they will be able to assist in the devel- 
opment of new markets for German wares. The men selected for 
these positions are patriotic German subjects and experienced busi- 
ness men, who are intenseh- interested in the object for which they are 
working. They are in close and constant touch with the ministry of 
commerce and. throtigh it, with every individual chamber of com- 
merce in the German Empire and its colonies. It is their duty to 
collect and forward to the ministry of commerce suggestive informa- 
tion and samples. The ministry of commerce then submits this infor- 
mation as it sees fit to the chambers of commerce at various industrial 
centers. These commercial experts return to Germany periodically 
in order to make interesting oral reports to the ministry of commerce, 
and for the purpose of visiting, and thtis coming into more intimate 
totich with, individual chambers of commerce. They deliver ad- 
dresses to such chambers of commerce and orally disctiss the subject 
of trade extension with the individual members, answering their ques- 
tions and offering valuable suggestions. 

It seems to me that this is a much more sensible and profitable plan 
than to publish to the whole world in Consular Eeports information 
collected at the expense of the American Government which is meant 
to be of use and value principally, if not exclusively, in connection 
with the building up of our own export trade. 

Is not the value of such information very much lessened for our 
manufacturers and exporters by publication and indiscriminate dis- 
tribution, which places it also freely and simultaneously at the dis- 
position of their foreign rivals and competitors ? If we are working 
intelligently for the extension of American export trade, it seems to 
me that it would be wiser to copy the German plan described above, 
and thus devote more exclusively to the interests of our own people 
information which, if thus discreetly used, may not only help them 
to compete more successfully, but may also afford them a direct 
advantage over their foreign rivals. There are, of course, many 
reports of general interest which can safely and without risk to the 



PROMOTIOK OF TRADE INTERESTS. . 61 

interests of our exporters be given to the press, either directly or 
through Consular Reports, but I am of opinion that reports specially 
called for, and many others giving hints in regard to trade oppor- 
tunities and the requirements of foreign markets, might be made 
much more useful in the extension of our foreign trade if the infor- 
mation contained therein were quietly and confidentialh^ given to 
interested American manufacturers and exporters through our cham- 
bers of commerce, in the German fashion. 

Geoege H. ^Iurphy, Vice- Consul- General. 
Frankfort, August 2S, 1904. 



HAMBURG. 

I have the honor to ac]<:nowledge the receipt of the Department's 
circular instruction of the 4th ultimo, transmitting a copy of a cir- 
cular to the American diplomatic officers, dated July 29, 1904, desir-' 
ing the expression of my views in regard to a plan for the coordina- 
tion and improvement of existing facilities for the collection of com- 
mercial intelligence and the promotion of American trade interests 
abroad. 

In reply I may say that I think well of the plan in question, al- 
though I am inclined to believe that a great deal of valuable informa- 
tion can not be obtained by applying to foreign authorities through 
the diplomatic channels, and that information thus obtained will 
always be limited to statistics and general matters of trade, the au- 
thorities carefully avoiding subjects and particulars the exposing of 
which might prove detrimental to their home trade, or be looked upon 
as revealing business secrets. Particularly, such matters are fre- 
quently of great value for the promotion of our trade interests, but, 
as stated, it is almost certain that the authorities of foreign countries 
will, in the interest of their OAvn trade and industry, avoid officially 
exposing any information contrary to their interests. Such informa- 
tion, in my opinion, will always be obtainable only through private 
inquiry, although generally connected with great difficulty and fre- 
quently subject to unfavorable and disagreeable comment on the part 
of parties applied to. 

As far as this office is concerned, and with regard to obtaining in- 
formation through official sources, Ave have always been able to secure 
such information at first hand by aj^plying to the local committee of 
the senate on imperial and foreign affairs. That office has always 
most courteoush^ gi^-en information so desired, although generally 
attended with great delay, so that in the preparation of reports I 
have as infrequently as possible applied to said office. As further 
regards this office, information to be obtained from official sources, I 
am convinced, will always be as willingly furnished by the local au- 
thorities to the consular officer accredited to the free and Hanseatic 
city of Hamburg, as it would be given to the diplomatic representa- 
tive at the German capital, through the foreign office at Berlin. 

iS'otwithstanding, I think it would be worth while considering the 
creation of the post of a commercial or industrial attache to the em- 
bassy at Berlin, for the collection of commercial intelligence, as an 
efficient officer appointed to such post may undoubtedh^ be in a posi- 



62 PROMOTION OF TRADE INTERESTS. 

tion to revise, correct, or amend manj^ consular reports so as to render 
them more valuable for American commercial and industrial in- 
terests, or make valuable suggestions to the various consular officers 
in the direction of preparing reports. In my opinion, many of the con- 
sular reports published, particularly those prepared and transmitted 
by consular officers covering subjects outside of the scope of their offi- 
cial jurisdiction, would prove more valuable if properly amended or 
corrected, as occasion may require. 

Hugh Pitcairn, Consid-General. 
Hamburg, Septenfiher 7, lOOJf. 



Opinions of other Consular Officers. 

AIX-LA-CHAPEIiLE. 

In reply to circular of August 4, " Promotion of trade interests," 
I have to say that my views are based upon observations in this con- 
sular district and upon German business customs at the present time. 

First. An ambassador should not be an understood medium foi 
commerce in Germany. 

Second. The secretary of legation might be instructed to obtain 
and answer questions of consuls-general, Avhen special conditions con- 
front the consul-general or consul, although there is no question but 
that the same would be just as cheerfully done by courtes}^ 

Third. The procuring of general trade information of a country or 
government should be the duty directly of the consuls-general, and 
they should be expected to report upon conditions in general. For 
such purposes local information from consuls should be made availa- 
ble by a general Department instruction, and upon request from a 
consul-general. 

Fourth. Consuls, in their reports, should confine themselves usu- 
ally to their own consular district, but should not be restricted if 
they desire to make a report in general, such report, however, to pass 
through the consul-general for his approval or otherwise. 

Fifth. A consul should be instructed that promotion of American 
trade is a duty, and that upon results depends his standing in the De- 
partment, his recognition, etc. 

Sixth. The system in vogue for the last six years has been efficient 
and hard to be improved upon for results. The consul can best ascer- 
tain the wants of his particular province for American goods in com- 
petition with local goods, and in my restricted acquaintance with 
American consuls, I have found all of them interested in furnishing 
American trade. I may add that this office has for six years acted 
upon this principle. 

Seventh. By way of suggestion, I would propose that at each capi- 
tal there should be an official, not an attache, but under the State 
Department, whose duty should be the gathering of statistics and 
making reports upon opportunities for American products. A consul 
receiving business or trade letters should be permitted to refer to him 
for information or answer. The official referred to should visit once 
a year each consular district, spend a few days, not hours, with the 
consul and interrogate the latter on American trade interests. Such 



PROMOTION OF TEADE INTERESTS. 63 

person should be selected only for established qualifications, expert 
judgment, capacity for statistics, and knoAvledge of what American 
products are, etc. 

Eighth. This question is of tiie greatest import to America, and 
there is much room for argument in determining the best policy. In 
my opinion American consuls are the best medium for foreign-trade 
advancement and information, and no other branch of the Govern- 
ment service can so well be used for that which, after all, is purely 
individual and personal in results. In no manner, however, should 
the consul put himself into the category of a business agent. 

Ninth. Business men should be informed that the consular service 
is at their use, indi^ddually or collective^, only through the State 
Department. 

I find that my files contain copies of five letters written last week in 
answer to business letters from Louisiana, Ohio, New York, and Illi- 
nois, for the consul's opinion as to trade opportunities for certain 
goods. Each received a short report, with names of dealers in their 
respective goods. 

Frank M. Brundage, Consul. 

Aix-la-Chapelle, August 2If, lOOJi. 



BREMEN. 



In compliance Avith the circular of August 4-, " Promotion of trade 
interests,'' I have the honor to respectfully reply that, in my opinion, 
such a plan as is suggested can not be recommended too strongly, and 
that the difficulties of setting up such an instrument as would bring 
about definite and practical resuhs, Avhile the}^ would be great, ought 
not to be unsurmountable. 

Such a central bureau avouIcI, in my judgment, concentrate the 
efforts of all the American consulates upon the one great purpose of 
extending our trade abroad, as it is impossible to do Avith our present 
system of individual consular efforts. It would stimulate greater ac- 
tiA'ity in this direction, and be apt to arouse in the minds of our con- 
suls, as nothing else could, the laudable ambition to excel in this 
respect, and at the end of each year to show, if possible, continued in- 
crease in the amount of American goods imported into their districts, 
be such increase great or small. 

The greatest difficulty Avould be to find the right man to lead in 
this moA^ement for an organized extension of our trade. In my 
humble opinion, he should be a veteran in our consular service, fully 
familiar not only Avith CA^ery detail of consular work, but also with 
all the natural resources and with the leading industrial, commer- 
cial, and agricultural capacities of the country in Avhich he is to 
labor. Such an official avouIcI haA^e to be attached to an embsiss}^ or 
a legation to be in a position to obtain official information at first 
hands. 

Henry M. Diederich, Consul. 

Brejnien, Septeiiiher 6^ 190 J^. 



64 PROMOTION OF TRADE INTERESTS. 

BAjtfBERG. 

Replying to circular of August 4, I have the honor to state that, in 
my opinion, much good could be accomplished if arrangements could 
be made that would facilitate cooperation between the diplomatic 
representatives and the consular officers in promoting American 
trade in all its forms. 

A consul may have acquired a reasonable acquaintance with the 
peculiarities and specialties of commerce in his own district and 
may be able to furnish information on most subjects of trade, and 
yet could report more intelligently many times had he the means of 
comparing his report with more general information. 

I have never been refused a cordial answer to any request I have 
made for such information, but if some system can be established 
by which the diplomatic representatives would' impart general in- 
formation on commerce and industry accessible to them at head- 
quarters to the consular officers, who could then compare the same 
with the special information gathered out of their own districts,- 
much good would result to American trade. 

Wm. Baedel, Consul. 

Bamberg. Septemher i, 19G4. 



BAK3IEX. 



I have the honor to acknowledge receipt of circular, " Promotion 
of trade interests." and in answer beg to submit the following 
suggestions : 

For the promotion of trade interests in foreign" cotmtries — Ger- 
many, to which I am accredited, for one — I think it would be prefer- 
able if the Department of State would send instructions for particu- 
lar inquiries to the respective consuls as heretofore. Reports from 
this consular district in answer to such instructions — for transmission 
to the Department of State — ^liave always been directed to the consul- 
general at Frankfort-on-the-Main, who holds supervisor}^ jurisdic- 
tion over this consulate. It certainly will occtir that reports some- 
times contain slight errors of facts, for the reason that, in most cases, 
opinions upon subjects sought have to be collected from different 
sources and may not alwaj^s be interpreted correctly. ^Hiether it 
would be jiidicious that consuls-general be directed to revise reports 
sent to them for transmission I would not venture to say. Reports 
on certain questions may differ, in consequence of local or other 
causes, jet each one may be substantially correct, although apparently 
somewhat conflicting. 

I am of the opinion that the present system of reports from consuls 
in regard to the commercial and industrial interests is as efficient as 
it can be made. All questions of interest asked by the Department are 
promptl}^ answered, and the information can only be obtained by the 
consul in his district, where usually there are but few branches of 
industry prevailing. 

These reports pass through the consul-general, who has them from 
all consulates in his district, and is able, therefore, to give general 
conclusions. 

Theodore J. Bluthardt, Consul. 

Barmen, August 30^ 190J^, 



PROMOTION OF TKADE INTERESTS. 65 

BKESLAU. 

In response to the Department's request contained in its circular, 
" Promotion of trade interests," dated August 4, 1904, I have the 
honor to say that I am decidedly of the opinion that American diplo- 
matic officers might often be important factors in obtaining informa- 
tion valuable to our commercial interests, particularly if they could 
have attached to their offices capable assistants especially selected for 
the purpose of investigating commercial conditions abroad and col- 
lecting information for use in the advancement of our own trade pos- 
sibilities. 

This would be most emphatically the case in the great industrial 
countries which are our principal trade rivals, where it is growing 
more and more difficult for consular officers to obtain information on 
trade subjects, and where the cooperation of diplomatic officers might, 
owing to the obligator^' courtesies and attentions shoAvn them here, 
prove of great effect in obtaining information which sometimes might 
be withheld from a consular officer, especially when required from 
official sources. 

I have often thought that if consular officers seeking information 
in any of the leading industrial countries could sometimes have at 
their command the advantage of -a small fund upon which to draw, 
the amount of information they might thus obtain would be worth 
incalculably more to the trade interests of our country than the cost 
of the same. 

In case the diplomatic officers should ultimately cooperate with the 
consular officials, as suggested by the circular, perhaps it might be 
feasible to have provision made for such a fund, to be expended under 
the supervision of the diplomatic officers. 

Ernbst a. Man, Consul. 

Beeslaq, Germany, Beptemher 2J[^ 190 J^. 



BRUNSTVICK. 

The question of the employment of the diplomatic service in pro- 
moting trade interests in cooperation with the consular service 
deserves serious consideration. 

Hitherto, this has been the particular province of the consular 
service. While the diplomatic service has been occupied with mat- 
ters of a political nature, namely, questions of peace and war between 
the particular governiiients themselves or between other governments, 
the status of the citizens 'of each government, extradition, and the 
lilve, the consular service has confined itself to affairs of a commercial 
character. 

However, vvith the increased and rapid intercourse between coun- 
tries, brought about b}^ the inventions of steam and electricit}" ; the 
breaking down of the ancient barriers of prejudice produced by dif- 
ference in language, race, and creeds ; the immense progress made by 
commerce and the prominence which questions of trade have taken, 
arising from matters of tariff'; the formation of vast syndicates to 
control the production and distribution of different articles, which 
are daily becoming more and more international in their influence 
H. Doc 245, 58-3 5 



66 PROMOTION OF TRADE INTERESTS. 

and operations, the question naturallv arises -.viietlier the line of 
demarcation which has separated the two services shall continue to 
exist or whether the two services can not mutuallv assist each other 
in promoting trade interests. 

In considering the bearing of this question upon the trade relations 
of the United States and Germany it inust, in the first place, be borne 
in mind that high industrial protection is and has been the policy 
of each country for a number of years. Each possesses a tariff, 
largely the work of experts, T^'hich protects the interests of each with 
an extraordinary degree of refinement. The regulations putting 
these tariffs into effect have been and are novr causing more or less 
friction between the two countries. Both countries desire more inti- 
mate trade relations, and that the obstacles which prevent it shall be 
removed, but not at the sacrifice of any advantage obtained by the 
other. At the present time the Landwirtschaft, or agricultural 
party, is in control of the politics of Germany, and through its influ- 
ence increased duties have been put upon breadstuffs and provisions, 
so that the importation of the former has been much restricted and^ 
in the case of the latter, that of pork products has been prohibited, 
with the exception of sides of bacon and lard. 

At the same time, nearly all branches of German industry have 
been protected, especially cotton goods, the importation of which 
from the United States and England has practically ceased. The 
question to Avhat extent these artificial barriers, which prevent the 
free commercial intercourse between tlie two countries, can be 
removed or modified is a matter for the Governments of the respec- 
tive countries. At the same time, it must not be forgotten that these 
trade barriers may be broken down in a measure b}^ the course of 
natural events. 

The population of Germany is increasing rapidty and already 
exceeds the means of subsistence. Breadstuffs and provisions must 
be imported to sustain the population, and in the case of the failure 
of crops, the custom duties limiting their importation would have 
to be at least temporarily suspended. Time, the all-importa.nt fac- 
tor, can bring about changes in trade conditions without the danger- 
ous procedure of tariff tinkering, which unsettles btisiness and at 
times causes panics. Permanence in trade conditions, even if bad, 
is better for the merchant or manufacturer than uncertainty. Sharp 
business sense and mother wit can circumvent unfavorable trade con- 
ditions without the suggestions and aid of others more or less igno- 
rant of the conditions. A stream that can not pass through a rock 
will go around it. The cost of producing textiles may be so redticed 
by mechanical inventions and otherwise in cotton-producing coun- 
tries that they can be exported with profit to high-tariff countries, and 
surplus manufactures, after satisfying the home market, exported 
without loss and high wages maintained. 

A commercial representative attached to the embassy at Berlin 
charged with the special duty of collecting industrial and trade infor- 
mation, might be a valuable adjunct, and the consuls • might render 
him assistance in informing him of the particular trade conditions 
of their respective districts. It is likely that the ambassadors, par- 
ticularly in the great European capitals, have more and better oppor- 
ttmity to obtain commercial information from the different depart- 
ments of the foreign government than consuls. 



PROMOTION OF TRADE INTERESTS. 67 

The same rule holds good in smaller cities which are the seats of 
local governments, such as Brunswick, the capital of the Duchy of 
Brunswick. In such places, the consul bears in some degree, as the 
representative of his government, the same relation to the local 
iiuthorities as a diplomatic officer, and they will, as a rule, impart to 
him information as readily as they would to an ambassador, and 
reversely, decline to give such information if in their opinion it 
was not desirable to give it. 

Whether it would be advisable to subject the reports of consuls to 
the criticism of diplomatic officers or a commercial attache is a mat- 
ter which admits of some doubt. It might in some cases produce 
friction and injure the initiative of consuls, who might think they 
were ■ as well if not better informed upon the subjects treated by 
them as the persons who undertook to criticise them. It is possible 
that on some subjects, especially wdien information was obtained by 
the consul from the departments of a foreign government by his 
ambassador, at his request, this objection would not apply. 

On the other hand, the transmission of the instructions of the 
Department of State to the different consuls by the diplomatic officers 
might turn out to be a good move, for it would facilitate a more 
effective distribution of instructions in assuring that they would 
reach the consuls competent by reason of the location of their con- 
sulates to treat the subject and make the report required. 

The appointment by the German Government of commercial at- 
taches at the German embassies and more important consulates has 
proved to be an excellent and advantageous measure. This was a 
matter of necessity for Germany, in order to promote its trade inter- 
ests. Experience had shown that the technical education of German 
diplomatists and professional consuls did not adapt them for com- 
mercial positions. They were educated as jurists, and had few or no 
ideas of commercial matters and business methods. A German Gov- 
ernment official, as a rule, comes very little in contact with merchants 
or men of business. The mercantile classes do not hold in Germany 
the same social position as in America. I'or these reasons, the ap- 
]:)ointment of commercial attaches at the German embassies and more 
important consulates was necessary. This does not apply as much 
to the American diplomatic and consular services, where the posi- 
tions are held more or less by persons who have had the benefit of 
some practical business training and have been more or less men of 
?iffairs in their own country. 

In conclusion, on the wdiole it might be well to make a trial of the 
appointment of commercial attaches at the different embassies. It 
might lead to a more exact distribution of instructions by the Depart- 
jnent of State to the consuls, and a subsequent revision of their 
reports, under careful regulations, which would prevent giving 
offense, might correct errors and bring more harmonj^ in the reports. 
Moreover, b}^ such an appointment the Government would have at 
the capital of a foreign state an officer who might at a moment's 
notice give important and valuable commercial information at any 
time. 

Talbot J. Albert. Consul. 

BnuxswicK, Germany, Se/ptemher 16, 190 If. 



68 PROMOTION OF TRADE INTERESTS. 

CKEFELD. 

The embassies and legations, in ni}^ judgment, would be greatly 
hampered in their legitimate AYork were they charged with the duties 
of collecting industrial and trade information in conjunction with 
the consular service, while the consular service would, in a measure, 
lose its effectiveness if made subject to or subordinate to the diplo- 
matic service. Embassies and legations, under their present status, 
deal almost solely with the officials of the government to which the}^ 
are accredited and are bound to conform their actions and con- 
duct to a great extent to the formalities and conventions existing 
under the same. 

The consular service, on the other hand, deals principally with the 
business element within its jurisdiction, and usually conducts the 
business of its office upon business princijDles, without regard to 
formalities, whatever thej- may happen to be, and they are not 
restricted by that extreme prudence, care, and precaution necessarily 
practiced in conducting the business of the embassies and legations. 

The public, under present conditions, look upon the diplomatic 
and consular services as distinctive and separate from each other, so 
that the embassies and legations are not embarrassed by the over- 
zeal sometimes manifested hj consuls in the methods employed to 
secure desired information. 

I deem it a compliment to the consular service that the American 
consul is looked upon with suspicion if seeking information upon 
some matter that might be turned to the ad^'antage of the American 
people. In no case would I Avish suspicion attached to the diplomatic 
serAdce of our country, or its efficiency impaired b}^ assuming a re- 
sponsibility that at present does not exist. 

The intelligent person as a rule attempts to live up to his concep- 
tion of the duties of the position to Avhicli he ma}^ be assigned and to 
conform his actions and conduct to the character of such j^osition as 
appears to him to be most conduciA^e to the honor and efficiency of 
the same. A prosecuting attorney would act quite differently in of- 
ficial conduct were he made a judge of the same court in which he 
practiced; so, too, Avould the consul, should the status of the di|)lo- 
matic serA^ce be affixed to the consular serA'ice. 

The most efficient consul I haA^e so far met commenced his official 
career by paying off the uniformed page employed at the consulate. 
He informed the patrons of the office that during official hours he 
was there, ready, and Avould be pleased to attend to any business they 
had to offer ; the door Avould be open, no need to knock, but come right 
in: he Avas there to do business and an introduction Avas not neces- 
sary. His conception of consular duties Avas to conduct his office in 
accordance Avith American business methods, taking all responsibility 
upon himself for his acts, and there is no need to say that he is thor- 
oughly familiar Avith the duties of the offixe or that patrons liaA^e 
been Avell pleased with the serAdce, regardless of what formalities they 
themseh^es practice. 

The consular service, by custom and usage, has lost much of its dip- 
lomatic character, and it is said to have made " a general and A^ery 
marked advance in its utility in collecting information as to business 
conditions.'' AYould not restoring its diplomatic character affect its 
utilitv in this direction ? 



PROMOTION OF TRADE INTERESTS. 69 

I believe that, if the consular service were united with the diplo- 
matic and made subordinate thereto, the consul would lose his free- 
dom of action : that the personal incentive which now encourages him 
would be removed, and that the " spirit of initiative " would be event- 
ually eliminated from the consular service. 

I further believe that the embassy or legation should not be sub- 
jected to criticism by engaging in such business as might aifect the 
standing of its j)ersonnel; that serious questions of propriety would 
arise from the assumption of such duties by it as outlined, and for its 
best interests it should be left free and untrammelecl from assuming 
them. 

Thomas E. Wallace, Consul, 

Ceefeld, September -5, 190]^. 



DRESDEN. 



I have the honor to ackno^.vleclge receipt of the circular " Promo- 
tion of trade interests," and beg to say that, in my opinion, the plan 
set forth therein has many good features — some objectionable. 

It is doubtless a fact that oHicers of foreign governments would 
often give information to ambassadors or their accredited agents 
that is withheld from consuls, but usually, the latter adopt means 
for acquiring the knowledge, sometimes roundabout, troublesome, 
and expensive. 

The officers of the Saxon Government have never failed to respond 
favorably to reasonable inquiries from this consulate, but trade 
organizations and manufacturers frequently decline, and with these 
1 doubt if the ambassador could be more effective. 

By collecting reports from consuls in the country to which he is 
assigned, and carefully editing the same, an ambassador could pre- 
sent the final report in a condensed form, saving much trouble to 
the Departments at Washington and considerable expense in print- 
ing. He could prevent erroneous impressions regarding the general 
trade conditions of the countr}', for a condition may exist in one 
consular district wdiich does not obtain in others. 

It is presumed each ambassador would employ several commer- 
cial attaches to look after the additional duties imposed on him; and 
with no other business, and devoting their entire time to one object, 
these agents should be effective, but the cost for the service would be 
largely increased. 

The main question for the Department to decide is whether it will 
smother the spirit of industry and intelligence that has made the 
American consular reports valuable to the commercial and manu- 
facturing interests of our country during the last decade, for if you 
compel consular officers to sink their identity, a corresponding lack 
of interest will naturally follow. 

My impression is that if consular officers were given more discre- 
tion, and if a portion of the increased cost contemplated in the 
I)roposecl change were allowed them for necessary and legitimate 
expenses, it would result in more satisfactory^ reports and better 
service. 

Charles L. Cole, Consul -General. 

Dresden, August 31^ 190^. 



^0 • PEOMOTIOIS^ OF TRADE INTERESTS. 

ELBENSTOCK. 

In reply to the Department's circular of August -i. I beg to state 
that, in my judgment, the appointment of commerical and industrial 
attaches to our different embassies and legations would be a step in 
the right direction. Their tenure of office'should last as long as they 
are capable of rendering efficient service. 

Whether or not it Avould be wise for oiu' diplomatic officers to 
activelv and officially engage in gathering commercial information is 
a question which I am not prepared to answer. Would such ser^^ce 
weaken or strengthen the official status of our embassies in European 
countries? In Germany our consular officers have the reputation of 
being very efficient, and for this reason have, in late years, been re- 
garded with considerable suspicion by manufacturers and Govern- 
ment officials. It would seem to me that attaches, at least in Eu- 
ropean cotmtries, would be more practicable than openly and officially 
engaging the services of our diplomatic officers in the active search 
for commercial information. A commercial attache would form the 
connecting link between the embassy and consulates, and ultimately 
achieve with less friction better and more lasting results. 

Erxest L. Harris. 

Commercial Agent, 

EiBENSTOCK, August 24^ 190.!f.. 



FKEIBUKG. 

In reply to the Department's circular, '' Promotion of trade inter- 
ests," I have the honor to say that, in my opinion, the circular in 
question has touched upon all phases of the subject so thorotighly 
and so clearly that any ideas expressed must necessarily, to a great 
extent, be a repetition of those already contained therein. 

The consular districts are limited in area, and a consular officer 
is accordingly expected, under ordinary circumstances, to limit his 
investigations on business and commercial affairs to his own district 
only, and, moreover, a consul oftentimes encounters difficulties in 
acquiring the desired data for a report, especially if the authorities 
have occasion to believe that their own business men are likely to 
suffer if all the requested information is given. 

For these reasons it certainly seems very desirable to have a com- 
mercial attache connected with the embassy, whose special duty shall 
be that of collecting industrial and trade information, and who could 
call upon the several consuls for aid in obtaining such facts either 
directly or through the consulate-general, as each case may require. 

It will also be quite evident that a conmiercial attache, with a corps 
of assistants, will be able to do considerable editing and arranging 
of reports intended for the printer, and so, to a great extent, relieve 
as well as further the work of the Department of State at Wash- 
ington. 

As, according to the principles of international law, an embassy or 
diplomatic representation of a country is a representation for the 
State as a government, and not for any particular interests, as com- 
merce, railroads, schools, etc., of the foreign state, it would seem to 



PKOMOTIOT^ OF TRADE INTERESTS. 7l 

me that the question of propriety could very properly arise from the 
assumption by an embassy or legation of duties other than those 
pertaining to the State as such. 

The fact, however, remains that there are military attaches con- 
nected with the several embassies and that some nations have 
already appointed diplomatic representatives, known as " commercial 
attaches," which Avould seem to indicate that it would also be possible 
and proper for the United States of America to look out for its 
trade and commercial interests through the appointment of similar 
diplomatic officers. 

In the course of my travels in the several countries of Europe, 
whether by rail or especially by bicycle, when I would come into 
closer touch with the people I could not but realize that the people 
with work and sufficient work, even if the pay be small, are a happy 
and contented people, and their country a comparatively safe coun- 
try to travel in, and vice versa, where there was little or no work 
there was no pay, no money, the people were idle, a system of beg- 
ging prevailed, which necessarily would produce the idea and sense 
of danger. The question of industry and labor is so intimately con- 
nected with the happiness of a people, and the general wealth and 
prosperity of a country, that I cheerfully express my most hearty 
satisfaction in any steps taken by the Government, at home or 
abroad, toward developing or increasing the commercial facilities 
and promoting the trade interests of the United States. 

E. Theophilus Liefeld, Consul. 

Freiburg, October 17^ 190/i. 



MAKNHEIM. 

Referring to the Department's circular, " Promotion of trade inter- 
ests," I have the honor to report that I do not believe I can offer sug- 
gestions on this subject that are likely to be of much value. 

There are some inherent difficulties in securing full information on 
many topics of trade and mraiufacturing in Germany, for example, 
which no system of cooperation between embassy and consulate would 
overcome. The perfecting of such a system and its publication to the 
w^orld might, perhaps, result in a more careful guarding of informa- 
tion with reference to important matters of trade, and not only prove 
embarrassing to both branches of the service, but defeat tlie end for 
which the proposed cooperation was brought about. 

The feeling on the part of the German manufacturer is undoubt- 
edly adverse to giving out information to be used by foreign com- 
petitors. Yf ithin the past vreek, a prominent German newspaper has 
commented editorially on a visit now being made in Germany by a 
body of English engineers, and has expressed the view that they 
should not be shown the interiors of plants and be furnished vv^ith 
information that will be likely to be used against the German manu- 
facturer. The same note of warning has, as is well known, been sev- 
eral times sounded by the German press as against the American con- 
sular service. Were it to appear that the diplomatic and the consular 
service were coordinated for the avowed purpose of aiding each other 
in the gathering of news likely to be of value in American trade, it is 
a question whether the residts might not be unfavorable. 



72 PROMOTIOlSr OF TRADE INTERESTS. 

Taking, for example, my own district, which is a center of large 
:jnd extremely varied manufacturing interests, I have met with the 
most cordial reception on the part of managers and have visited the 
larger part of the important concerns in the district. This has been 
permitted only because it seems to be understood that I will not abuse 
my newsgathering functions. If I did this a single time and that 
fact were known, I would at once find admission to factories denied 
me and relations established that would make official residence here 
unpleasant, if not unbearable. Were I to seek to make a critical 
study of celluloid manufacture or wood-pulp manufacture or quinine 
manufacture or to secure photographs of the machinery used in the 
manufacture of plate glass in this district, or to secure admission of a 
technical man to certain of the factories here, or do many other simi- 
lar things, I would surely fail, and probably no S3'Stem of coordina- 
tion between the embassy and my office would aid me. It is a well- 
known fact that a large number of our commercial reports under the 
present system find their wa}^ back to our districts and are reprinted 
m the local papers. Any breach of good faith on the part of a consul 
or seeming abuse of courtesies shown him in factories would result in 
a loss of standing from which he could not recover. 

It has seemed to me that were the Department supplied with an 
industrial map or chart of each country, showing by consular dis- 
tricts the branches of industry carried on in these districts from 
year to year, and have the reports of a given industry so collected 
by consuls tjiemselves as to show the state of that industry in the 
entire country, it would certainly prove more satisfactory than the 
present system. For example, a half dozen consular districts in 
Germany are prominent for the manufacture of cotton goods. If 
some one consul was assigned by the Department to investigate and 
report on the subject as a whole, it avouIcI certainly have more interest 
for the American cotton trade than to have the reports b}^ piecemeal, 
as under the present system. For such report the consul designated 
should have authority to call on all his colleagues who have the same 
industrj^ represented in their districts. Such designation by the De- 
partment would be a stimulus to a consul to prepare a full and com- 
plete report, and having the right to call on his colleagues for infor- 
mation, he 'could do this as he can not hope to do under the present 
system. Doubtless in some cases the ambassadors could and would 
secure at first hand statistics and other information required to make 
such report complete. The consuls-general at capitals would also 
aid in this. The assignments could be made of the tobacco industry, 
chemical industry, textile industry, technical schools, leather trade, 
Portland cement industry, electrical railway building, oil business, 
etc. This ought to secure for public reference at least one well- 
considered report from each consul per year, and need not serioush^ 
interfere with the present brief reports made from time to time. 

It would be exceedingly difficult for any one consul to make a 
reliable and complete report of the important tobacco inclustpy in 
Germany without the assistance of three or four of his colleagues 
who are in tobacco districts. He can not call on the Leipzig or Dres- 
den or Nuremberg boards of trade for their reports, but the consuls 
of those districts have these reports, and were a consul designated to 
write up the industr3% it would be a simple matter to have his col- 
leagues send him their last reports for examination and return in a 



PROMOTION OF TRADE INTERESTS. 73 

few days. Such request could give no offense to the colleague be- 
cause the topic assigned to him for report would make such recip- 
rocal favors necessary and proper. 

To STunmarize briefly, I think it doubtful whether to so widen the 
functions of the diplomatic service in Germany as to make it in part 
a news-collecting or statistical bureau might not only weaken that 
branch of the Government in its purely diplomatic character, but, 
on the other hand, that a system of cooperation on the part of the 
consular service might be inaugurated under the direction of the 
Department that would give to a consul designated by the Depart- 
ment the right to ask for information from his colleagues in the 
preparation of a report on a particular subject; also that such re- 
ports so collated by a consul at his post from information obtained 
from all sources open to him, including information from his col- 
leagues having the same branch of industry in their districts, would 
be more satisfactory to the American reader and to the consul him- 
self, and would prove a stimulus to him and a test of his fitness. 

In the assignment of topics selections should be made from those 
having the particular industry in their respective districts, and such 
system of rotation followed as would be fair to each. 

H. W. Harris, Consul. 

Maxnheim, August 26^ 190 1^. 



PI.AUEN. 



The undersigned begs to reply to the circular, " Promotion of 
trade interests," as follows : 

Assuming that the diplomatic service of our Government abroad 
will be sufficiently equipped to assume the very considerable burden 
of labor that will unquestionably fall upon it through the contem- 
plated scheme of trade investigations and trade reports, I would hail 
the proposed innovation as a very great step in advance of present 
conditions. 

A number of serious defects now hampering the efficienc}^ of our 
consular service would be easih^ removed by the inauguration of this 
new plan. 

I. Some definite system regarding trade reports by consular offi- 
cers, now left altogether to chance or the whim of the particular 
writer, should be established by a central head of the diplomatic serv- 
ice in the particular country to which such consuls have been accred- 
ited. Each consul could be then confined to such subjects as legiti- 
mately arise within his jurisdiction. Failure to report upon matters 
worthy of note could be discovered and remedied, and the matter col- 
lated could undergo a preliminary sifting, instead of, as now, being 
throAvn upon the Department as an undigested and unclassified mass 
of manuscript, to be either published or rejected. 

II. Much of the important information now sought by consuls can 
only be had from the books and statistics of government officials of 
the_ country to which they are accredited. These officials are, in the 
main, unwilling to disclose this information to a commercial repre- 
sentative of a foreign government, for fear that the same might be 
used commercially to the detriment of their own countrv. No such 



74 PEOMOTION OF TRADE INTERESTS. 

distrust is knoAvn to exist with reference to purely diplomatic repre- 
sentatives, and with a bureau organized as proposed, the consuls will 
be able to exchange the present unsatisfactory methods for one that is 
comparativeh^ easy and alwaj^s honorable. 

III. Every consul would welcome a system under which his atten- 
tion would be specifically directed to particular subjects of investi- 
gation, aided by suggestions as to the scope and intent of the inquiry. 
His report would naturally gain in pointedness and brevity, while 
much useless effort now wasted would be avoided. 

The plan of the German Government, recently adopted, of attach- 
ing experts to its foreign consulates, whose duty it shall be to collect 
and report exhaustive data upon the trade conditions of the respec- 
tive countries, and thus serve as guides for the German exporters, 
show^s the value attached by this country to a thorough and system- 
atic study of trade opportunities in foreign lands. There would seem 
to be at least equal, if not greater, reason why the American consular 
service should be rendered similarly efficacious, and -I sincerely 
believe that the suggestion noAv made tends in the right direction. 

Hugo Muench, Consul. 

Plauen, Septem,'beT ^, lOOJf. 



STETTIN. 



In reply to circular, '^ Promotion of trade interests," I have to say 
that this consulate experiences no trouble whatever in securing official 
information from first hands. Official, commercial, and industrial 
conditions are different in every consular district; no tw^o are alike. 
It borders on an impossibility for any one person, particularly a for- 
eigner, to possess sufficient knovdedge of the industrial and commer- 
cial conditions of the various consular districts to enable him to 
correct, revise, add to, or " pass " on consular reports, as suggested 
in the Department of State circular dated July 29, 1904. A com- 
mercial or industrial attache, working on his own lines and calling 
on the consuls for assistance, and vice versa, would cause no friction. 
Misstatements and errors in consular reports occur when the consular 
officer goes outside of his district and the country to which he is 
accredited for material to report on. In such cases his whole infor- 
mation is based on reproduced news matter, which, quite frequently, 
undergoes a series of changes. 

John E. Kehl, Consul. 

Stettin, Septe^mber ^, lOO^i,. 



STUTTGART. ■ 

Replying to Department's circular, " Promotion of trade interests," 
I beg to say: 

That of late years there has been a gradual increasing tendenc}^ in 
official circles in Germany, at least, to refuse to the consuls informa- 
tion upon subjects important to our commercial interests. l'\^iether 
this is owing to the growing spirit of rivalry or apprehension of 
American commercial supremacy, or whether it is a new policy 



PliOMOTION OF TRADE INTERESTS. 75 

inaugurated for certain purposes, which applies to the consuls of 
all nations, I am unable to say; but the fact remains that it is so. 

So far as my personal experience goes, I have been able to get 
about all the official information I have applied for, but I have been, 
here seven years and have established between the various depart- 
ments of the Government and myself most .excellent relations, and in 
some instances warm personal friendships. 

This may be due more to the amiability and high character of those 
in the Government service here than to any merit on my part,'but it 
has often occurred to me that, if the consuls selected for posts at the 
capitals of the various kingdoms in Germam^ had the honorary title 
of " secretary of legation," it would give them a standing and place 
them upon a footing of considerably more usefulness to our Govern- 
ment in various ways than that which they noAv enjoy. 

As these various kingdoms have always had diplomatic representa- 
tives accredited to and residing at the respective courts, it would be 
considered by these governments a very proper and complimentary 
thing to do and the change would be a welcome one to them, pro- 
vided, of course, that representatives so sent were of the character and. 
attaiimients commensurate with the duties of such position. 

There is no sort of question about this situation. Whenever a con- 
sul is located at a post where there are diplomatic representatives of 
other countries, even w^here these diplomatic representatives perform 
consular duties, the consul is at a distinct disadvantage, not only in 
obtaining information, but in other respects also, for he is not of the 
highest grade of those present, and his government, more than he, is 
the loser. It has always seemed a very simple proposition to me that 
our country, wdth its great and manifold interests, should be repre- 
sented at eYQYj post important enough to have a representative by an 
official equal to the highest of those representing other countries. 
These posts of w^hich I now speak, if made a part of our diplomatic 
service and stepping stones to ministerial positions, such as the con- 
sulate-general at Budapest and one or tw^o other like posts are in the 
Russian and English services, would be of considerable advantage to 
our country both in increasing the general efficiency of the occupant 
thereof and in affording a good training ground for duties in future 
diplomatic positions. It would also relieve the stagnation or want 
of movement in the diplomatic corps and provide a wider and more 
diversified experience for those in that service. 

I am aware that it is not considered expedient by our Government 
to create at these posts ministerial positions, but if each of them were 
consulates-general, with the honorary title of secretary of legation, 
possibly nearly the same results could be obtained as though the posi- 
tions were ministerial. 

As the Department is aware, our Government is the only Govern- 
ment of consequence w^hich has no diplomatic representative accred- 
ited at these courts in Germany. It may not seem important to the 
Department from a diplomatic point of view that this is the case, but 
that it is a disadvantage in a commercial way I have no doubt. If 
this simple change were made, the " lack of diplomatic status " of the 
consuls at these posts would be obviated. 

The many and varied duties of a consul at an important post which 
fill up his entire day prevent him, to some extent, from giving to the 
broad view of the commerce of the entire country in which he may be 



76 PROMOTIOIS^ OF TRADE INTERESTS. 

situated that investigation and study which he would otherwise be 
giad to employ. It should always be remembered, when considering 
the efficiency and the duties of our consular corps, that it has a vast 
amount of detail work daily to perform which the consuls of no other 
country have. I refer to the examination and certification of in- 
voices. For this and other reasons I have long been of the belief that 
a system of commercial attaches in the chief countries of Europe, at 
least, would be practical and advantageous. 

Such an officer would have no other duties to divert his attention 
or employ his time, and he certainly would become, if fairly able and 
industrious, an eminent expert upon all phases of the commerce of the 
country to Avhich he would be sent. I believe that we need such men, 
and that their work would be productive of practical results, if made 
supplementary to the reports of the consuls. 

As to whether our ministers or ambassadors would or could be of 
practical assistance to the consular corps in their reports, this would, 
of course, depend largely upon a variety of circumstances. If the 
incumbents were men of commercial instinct and training, and had 
sufficient time at their disposal to give serious thought to and investi- 
gation of the multifarious questions of commerce and finance, un- 
doubtedly they would become able adjuncts to the consular corj^s in 
this respect. Of course, the reports of a proper consular officer need 
little, if any, reviewing, and the judgment of a good consul upon 
commercial matters would be better than that of a minister whose 
time and attention were too much occupied with his other functions 
or whose instinct and training were not such as to especially fit him 
for this kind of service. 

It seems to me that the system already established of having the 
commercial reports reviewed by an able official in Washington who 
has abundant experience in consular work operates very well, and 
that any report which would pass him for publication would be 
most unlikely to embarrass a diplomatic officer at his post. If this 
view is correct, the most that could be expected of diplomatic officials 
in this avenue of eftort would be such independent work as they 
might be able to perform, which, of course, in some instances would 
be considerable; but the giving them any povv^er of correction or 
review of the reports of the consuls does not now impress me as 
practical, and besides, it would, in my opinion, have a bad effect upon 
the consuls and rob them of that esprit de corps which now exists. 

In brief, therefore, it seems practical to me to establish in the chief 
countries in Europe commercial attaches to supplement the work of 
the consular reports; to give the honorary title of secretary of lega- 
tion to the consuls at the respective important capitals in Germany 
in order to give them the '" diplomatic status " necessary to have 
access to all information important to our commercial interests — for 
our diplomatic representatives are not accredited to these courts — 
and to continue the sj^-stem now in vogue of the review of the consular 
reports in Washington, leaving to the diplomatic officers such oppor- 
tunities for giving commercial information as may arise. 

While upon this stibject of increasing the efficiency of the worlv of 
the consular corps, I venture to suggest a line of action which has 
long occurred to me to be most practical and, in fact, necessary, and 



PEOMOTION OF TRADE INTERESTS. 77 

there need be no legislation to bring it into being, at least in the be- 
ginning. 

Make all appointments only upon open and competitive examina- 
tions to the lowest grade of consulships, and make ail promotions, 
when vacancies occur, for efficiency of service rendered. By this 
means, a uniformly good class of officials would be gradually secured, 
and an entirety different feeling w^ould take place among those in 
this branch of the foreign service than that which now exists. 

It may be taken as an axiom in an}- effort in life engaged in by a 
body of men that, if there be no proper esprit de corps, the best 
results will not be attained, and there can be no proper esprit de 
corps in this service as long as a consul feels that new men without 
any training or experience in the work are to be appointed to places 
above him and that, no matter what his work may be, promotion is 
uncertain; in other words, that his success, unlike that in all other 
avenues of activity, does not depend upon himself. 

Eliminate these defects, and, although the salaries may be inade- 
quate and the tenure of office uncertain, obstacles surely serious 
enough to encounter without other burdens, the consul will feel that 
a serious practical interest has been manifested toAvard the consular 
service. 

An order embracing the foregoing and containing, in addition, a 
clause to the effect that no consular officer should be removed for 
political reasons, but that all removals should hereafter be for cause, 
upon charges filed, to which the one charged would have sufficient 
opportunity to reply, would establish in great measure that reform 
which Congress has so long debated without results. It may also be 
presumed that, after a fair trial and a sufficient length of time had 
elapsed to prove the benefits of such action, legislation could be pro- 
cured that w^ould fully complete and round out the organization of 
the consular corps on a practical and businesslike basis. 

Edward H. Ozmun, Consul. 

Stuttgart, AiLgust 31^ lOOIf. 



TVEIMAK. 



I have the honor to submit hereAvith my views on the subject of pro- 
motion of trade interests called for in Department's circular instruc- 
tion dated August 4, 1904, inclosing an instruction to diplomatic 
officers dated July 29, 1904. I am of opinion that action such as sug- 
gested in the instruction to diplomatic officers would render consular 
reports much more valuable, for the reason that diplomatic officers 
would only transmit instructions to and call for reports from such 
consuls as would be in a position to furnish the desired information. 
In this way much time would be saved. By the present system almost 
every consul is required to report, in answer to circular instructions, 
on any and all subjects, and many must, on account of their tardiness, 
cause the Department serious delay in issuing comprehensive reports. 

Again, the literary merit of the reports w^ould be higher were they 
carefull}^ edited at the legations and embassies previously to their 
being forAvarded to the Department. That this is a consummation 



78 PROMOTION OF TRADE INTERESTS. 

much to be desired is obvious to anyone who has read the consular 
dispatches sometimes received at the Department. 

It has been noticeable that the Department has heretofore issued 
circular instructions calling for reports to consuls without special 
regard to the fact that many concern subjects that it would be quite 
impossible for some of them to report on, owing to nonexistence of 
material in their respective districts. This seems unnecessary and 
occasions much work in the mere writing of dispatches stating that 
there is nothing to report and loss of time to the consul as well as to 
the clerical force of the Department. 

If it is determined that instructions shall not be sent to the diplo- 
matic officers for distribution and action, as outlined in the instruc- 
tion under consideration, I am strongly of opinion that instructions 
calling for reports from consuls should be sent only to consuls-general, 
where there are such having jurisdiction, in order that they may exer- 
cise an intelligent selection and only forward them to such consuls as 
they know to be able to give the needed information. 

It is certainly the case that a consul, by virtue of his office, is not 
always able to procure from official sources such information as may 
be needed hj him in the preparation of his reports, and it is most 
essential that inexperienced consuls should not be permitted to make 
requests to officials and others, only to be politely snubbed for their 
lack of tact. 

The Germans are rather disposed to consider any trade information 
furnished to our consuls as a weapon put into our hands to be used 
against them. The German press has called attention to written 
requests made by American consuls to chambers of commerce and 
other institutions for information of a more or less private nature, 
holding them up to ridicule and resenting their methods. Such 
blunders on the j^art of our consuls can oi^j be deplored, and the 
Department would, by taking the proposed action, put an end to 
them. 

By all means have reports prepared through the medium of our 
diplomatic officers, and secure expediency, uniformity, better literary 
style, and thereby avoid much unnecessary work. The diplomatic 
oificers, b}^ a process of careful selection and supervision, would surely 
obtain the above-mentioned results and save the Department much 
editing and labor. 

• Thos. Ewixg Moore, Consul. 

Weimar, Sejyteml^er IJf. 190 1^. 



GREAT BRITAIIS".^ 

Rejyort from Amhassador Choate. 

American E^ibassy, 

London^ November 19. 190 J}. 
Sir: I have given careful consideration to the Department's cir- 
cular instruction of July 29 last, with reference to the proposed co- 
operation of the diplomatic and consular services in the collection of 

a For opinions of consuls in British colonies and dependencies, see countries 
under geographical divisions, as, for instance, Canada under America ; India 
under Asia, etc. 



PROMOTION OF TRADE INTERESTS. 79 

commercial and industrial data, AYitli a view to the further promotion 
of our interests relating to trade in foreign countries. Before reply- 
ing to the questions therein asked, I would say that in so far as this 
country (the United Kingdom of Great Britain and Ireland) is con- 
cerned, I haye been unable to ascertain that any of our consuls have 
eyer been unsuccessful in obtaining commercial information which, 
had it been asked for by the embassy, would haye been furnished by 
His Majesty's" Goyernment; nor is there any record upon our files, 
except in the single instance hereinafter referred to, of applications 
made by consuls for any such information or of its haying been 
obtained through the embass}^, which I need scarcely say would haye 
at once complied with a request for commercial information received 
from one of our consuls. 

In repty to the first question contained in the circular, I have the 
honor to state that it would be practicable, if in the opinion of the 
Department desirable, for this embassy to transmit to our consuls 
in Great Britain and Ireland instructions from the Secretary of 
State for particular inquiries, with the addition of any suggestions 
y/hich might occur to the ambassador as likely to facilitate the 
desired inquiry ; nor is there any reason why answers to such special 
inquiries could not be transmitted to the Department of State by the 
consuls through the embassy, such answers being read oyer, and if 
necessary revised by the latter, provided, of course, that the staff be 
increased sufficiently to enable the work involved b}^ the addition 
thereby made to its duties to be properly dealt ydth. 

Witii reference to the second question in the circular, I have the 
honor to state that there is cooperation between the diplomatic and 
consular services of His Britannic Majesty; the commercial attaches 
to the British embassies which have such attaches being instructed 
" to give advice and assistance to British consuls within the area 
assigned to you (them) on all commercial matters," and to do like- 
wise '• to British chambers of commerce, merchants, manufacturers, 
find shippers," and that they " will be the recognized intermediary 
to whom they (chambers of commerce, merchants, etc.) will have to 
turn for information and guidance in these matters." 

The British Government has appointed commercial attaches to the 
embassies at Paris (for France; Belgium, and Switzerland) : Berlin 
(for Germany, Denmark, Holland, Sweden, and Norwaj^) ; Vienna 
(for Austria-Hungary, Italy, and Greece) ; and Madrid (for Spain 
and Portugal). 

There are also commercial attaches to the embassy at Constanti- 
nople (for Bulgaria, European and Asiatic Turkey), and to the lega- 
tion at Pekin, the latter being also a consul. 

The commercial attache at Paris has the rank of secretary of 
embassy, and is placed on the official list of the members of that 
embassy after the military attache and ahead of the second secretary ; 
those at Berlin, Vienna, Madrid, and Constantinople, not having the 
rank of secretar}^ of embassy, are placed on the list of those embassies 
after the second and before the third secretaries. 

The salary of British commercial attaches varies and, according 
to the foreign office list of this year, is as follows: Paris, £500; 
Berlin, Vienna, Constantinople, £800; Madrid, £725. 



80 PROMOTION OF TRADE INTERESTS. 

Their duties are set forth in the following Memorandum of Instruc- 
tions, viz : 

Jlciiioraudiini of inytnictions to Mr. Austin Lee on his appointment as commer- 
cial attache to Her Majesty's eniMssy at Paris, April 1, t896s^ 

1. Your residence iiiis been fixed at Paris, and in your capacity of commercial 
attache yon will assist in the transaction of all the commercial business of Her 
Majesty's embassy, under the direction of Her Majesty's representative. You 
^yill, however, be required, upon instructions from this department, to be issued 
as occasion may arise, to visit any other country or place within the area 
assigned to you. as defined in the dispatch of the 1st April, 1896, by which 
you were informed of your appointment. 

2. You should avail yourself of every possible source of information in regard 
to commercial questions, not only in tlie country in which you reside, but also 
in the other countries ^vithin the area assigned to you. For this purpose you 
should take such commercial and industrial papers and periodicals published 
in those countries as may appear best calculated to supply you with accurate 
information, and you will furnish reports from time to time on any matters of 
interest you naay find therein. 

You should submit a list of such papers, etc., together with a statement of the 
expenses which will be incurred in their purchase, in order that you may re- 
ceive the necessary authority to charge them. 

3. You will pay especial attention to the preparation of your annual report 
and of any special re]:)orts on matters of interest to British trade and industry-. 
You should also be prepared to assist Her Majesty's consuls and vice-consuls 
within the area assigned to you with advice, when required, in the preparation 
of their commercial reports. 

4. You will carefully Avatch all tariff questions in the countries assigned to 
you, and 3' on should report without delay, and if necessary by telegraph, any 
changes in import or export duties, duties of all kinds on shipping, or in any 
dues, regulations, or formalities v^-hich affect the import or export trade. 

5. You should follow the proceedings in the legislatures of the various coun- 
tries within your area as well as the meetings of chambers of commerce and 
other public bodies, and should furnish abstracts of anything of interest of a 
commercial or industrial character, together with such comments of your ovrn 
as ma3^ seem called for. 

6. You should be prepared to give advice and assistance to British consuls 
within the area assigned to you on all commercial matters, and also to British 
chambers of commerce, merchants, manufacturers, and shippers. You will be 
the recognized intermediary to whom thej^ will have a right to turn for infor- 
mation and guidance in these matters. 

You will therefore treat ail such applicants with every consideration and 
courtesy, and will use your best efforts to meet their wishes so far as you 
properly can. 

The correspondence annexed to this memorandum will serve for your guid- 
ance as to the limits v\'ithin which assistance can properly be given to British 
trade abroad.^ 

You will understand that, although you are not expected and can not be 
asked to act as agent or commercial traveler for ijrivate firms, or to push their 
particular business, it may still lie in your power to render them substantial 
assistance in the pursuance of legitimate enterprise, and you should endeavor to 
do so as far as possible. 

7. You should cultivate friendly relations in the countries within your area 
with tlie heads of those departments which are concerned with industry or com- 
merce, and also with the heads of any great manufacturing or commercial 
firms witli whom you may be acquainted, and who may be able to furnish you 
with valuable information, or may desire to be placed in relations with British 
firms. 

8. In addition to reporting on purely commercial questions j^ou will al^o give 
your attention to and report, as occasion maj^ arise, on the following subjects : 

(a) Mining and industrial concessions, and enterprises of British subjects 

« Similar instructions to the commercial attaches to Her Majesty's embassies 
at Vienna, Berlin, and Madrid. 

& Commercial No. 16 (1886), Parts I and II; circular, August 11. 1896. 



PEOMOTION OF TRADE INTEEESTS. 81 

within the area assigned, to you ; any difficulties connected therewith ; openings 
for extension or development, and possible new fields of enterprise. 

(&) Labor questions, strikes, rates of wages, workmen's unions, insurance or 
pension schemes, etc. • 

(c) Sanitary questions, especially in regard to quarantine and precautions 
against diseases of animals. It is important that any actual or prospective 
change in laws or regulations affecting these questions should be reported with- 
out delay. 

(d) Trade-marks and patents. 

(e) Railways and preferential railway rates, roads, waterways, and tele- 
graphs, changes in trade routes by land or water. 

(f) Technical education. 

(g) Bounties and subsidies. 

(h) Improvements in industrial methods and machinery. 

(*) The state and prospects of agriculture, including improvements in culti- 
vation. 

9. You will pay especial attention to the settlement of all claims by British 
, subjects as to customs fines or wrong charges and classifications for customs 
'duties, and you will take all proper means to assist in such cases. 

It will be desirable that on the 1st of March in each year you should furnish 
a list of all such cases which may have come to your knowledge and which may 
not have been settled, stating your views on the merits of each case, and giving 
the reasons why a settlement has not been arrived at. 

10. You will be careful not to lose sight of commercial questions which 
affect India and the colonies. You will" furnish reports upon such matters, 
and should be prepared to give information to colonial governments on matters 
of commercial interest, subject, where necessary, to instructions from this office, 

11. All communications with this department should be made through Her 
Majesty's representative, and all reports which you may consider to be of a con- 
fidential character and not suitable for publication should be clearly marked 
"' Confidential " at the top. 

The British Government has also appointed for three j^ears, from 
January 1, 1903, commercial agents in the United States (Chicago), 
Russia (Moscow), Switzerland (Zurich), and Central America 
(Guatemala) ; also (for an experimental period of two years) at 
Vladivostok. 

The business of these agents is to watch and report upon the com- 
merce, industries, and products of special districts, and to answer in- 
quiries upon commercial subjects. 

You ask me whether, in my opinion, a commercial attache to this 
embassy would be useful for the United States, and in reply, I would 
say that I do not see how, for the reasons previously stated, such an 
official could be of smj assistance to our consuls in obtaining material 
for their reports, and I fail to perceive how anyone in that position 
could be of value otherwise to the commercial interests of our coun- 
try, unless he should have had long experience as a man of business 
and be possessed of intimate and general knowledge of mercantile 
affairs. Such men, unless they had failed in business at home or 
were broken down in health, could only be obtained at a salary much 
higher, I should think, than that paid by the /United States to any 
consul-general or secretary of embassy, and would, therefore, be prac- 
tically out of the question. 

I have endeavored to ascertain what view is taken at the foreign 
office of the results obtained from the appointment of commercial at- 
taches to the British embassies previously alluded to, but the opinions 
obtainable do not seem to be unanimous on the subject. There ap- 
pears, however, to be rather an impression that the commercial work 
is probably better done at those embassies where there are commercial 
attaches than at those at which the duties in question are distributed 

H. Doc. 245, 58-3 6 



82 PROMOTION OF TRADE INTERESTS. 

among the ordinary staff of the embassy. The idea seems also to pre- 
vail that, as more attention is paid to official status in continental 
countries than in England, an officer with diplomatic rank is some- 
times in those countries in a better position to obtain valuable infor- 
mation from official sources than a consul. 

On the other hand, there are those who think that the arrangement 
diminishes the interest taken by the younger members of the staff of 
the embassy or legation in commercial questions, and consequently 
renders them less qualified to deal with such subjects later on in their 
career, when they may perhaps find themselves concerned in impor- 
tant commercial negotiations. 

I append hereto the following extract from the instructions issued 
to His Majesty's diplomatic representatives," from which you see — 

(1) That they are directed to ''make the commercial interests of 
Great Britain an object of their constant attention; " 

(2) That secretaries of embassies and legations are directed to visit 
the great maritime towns and ports in the countries to which they are 
accredited, with a view to making themselves familiar with the course 
of business there, and to suggest measures by which " the trade of 
British subjects might obtain facilities or be relieved from burdens 
and obstructions." 

(3) That, as far back as 1872, British diplomatic representatives 
were called upon " to report on the general question of British trade 
with the countr3^ to which they are accredited, and to suggest means 
for its further development," which secretaries of embassies and lega- 
tions do regularl}^; and that the secretary of embassy or legation at 
Paris, the commercial attache, or a junior member of the mission in 
his absence, is required to prepare and send to the foreign office at 
least two reports every year — one commercial, on the industry, trade, 
and general statistics of the country in which he resides, and the other 
financiaj, on its budget and finances generally — besides additional 
reports on subjects of general and commercial interest, as occasion 
may require. "* 

With regard to question ISTo. 3, I would say that it is somewhat 
difficult to form an opinion as to the additional assistance which 
would be required by an ambassador here in order to carry into effect 
the programme suggested in question 1, as it would depend very much 
upon the quantity of consular reports received for inspection and 
revision, and upon the frequency wherewith they would arrive ; but I 
should say that one additional secretary of embassy would be indis- 
pensable, but whether called " secretary " or "commercial attache," he 
should be a man qualified by commercial experience to deal with the 
important business so to be intrusted to him. It would, furthermore, 
be necessary for the offices of the embassy to be removed to more com- 
modious quarters, as there is no room available in the apartment in 
which the business is now and has been for the last twenty years 
transacted for another secretary, or for dealing with the consular 
reports in the manner suggested in j'-our circular. 

Having answered thus categorically, as nearly as I might, the spe- 
cific questions contained in your circular, I proceed, as invited thereby, 
with some suggestions that have occurred to me during my considera- 
tion of the subject, which may possibly aid you in dealing with the 

a Commercial. No. 16 (1886), part 1. Appendix A. Page 91. 



PKOMOTION OF TRADE INTERESTS. 88 

subject you have in hand, the " coordination and improvement of 
existing facilities for the collection of commercial intelligence." 

You will of course understand that, while you are considering the 
matter generally with reference to the diplomatic and consular service 
throughout the world. I am .necessarily looking at it as regards Great 
Britain alone and the condition of things now existing here. 

As I have already said, there has never been the slightest diffi- 
culty here in the wa}^ of the collection by the consuls of commercial 
intelligence in the fullest manner possible. During my tenure of 
office, I have never been called on by the consul-general and only once 
by any consul for aid in obtaining such intelligence, and in that 
particular instance I was obliged to decline the request for aid be- 
cause the object was to obtain information in the form of advance 
sheets of an official paper as yet unpublished, which I thought I 
had no right to ask, except for special reasons and under specific 
instructions from your Department. The commercial department 
of the foreign office is at all times open and accessible to our consuls, 
wdiose questions are promptly answered, and so it is with all other 
public offices in the realm of which information is asked which can 
properly be given. In this respect, as I understand, this Government 
and its official representative differ radically from some continental 
countries, where official inquires from foreign consulates are ignored 
and are required to be repeated with diplomatic sanction. 

In this condition of things I can not help thinking that, in this 
jurisdiction at least, it would be a mistake to make the changes 
suggested in your circular, however wise or useful they might be 
in other jurisdictions, and for the following reasons : 

First. It is wholly unnecessary and a multiplication of agencies 
for accomplishing an object which, is already adequately secured 
by existing agencies is of course superfluous. 

Second. It would pretty certainly lead to clashing or confusion 
between the embassy and the consulates; or 

Third. It would simply set them at Avork to do twice over what is 
already adequately done by one of them. The information, the 
statistics, and the reports would be reduplicated, without much 
gain. It would be employing two men to do one man's work, which 
always results in its not being well done by either. 

Fourth. The collection of commercial intelligence, in the general, 
and as a matter of regular routine, is wholly outside of diplomatic 
functions, and will be more properly and successfully done by the 
consuls whose official duties bring them into close and constant 
contact with the trade and commerce of the country. The aid of 
the embassy may be invoked by the consuls or ordered by the Depart- 
ment whenever special occasion may call for it. 

Fifth. In the course of my official experience under special instruc- 
tions from the Department, I have, in several instances, been able to 
assist in matters pertaining to commerce. In the matter of " London 
dock charges," I was instructed to make an investigation and report 
upon this subject, which was a com.plicated one, in aid of proposed 
legislation by Congress. When the chancellor of the exchequer pro- 
posed in his budget a new tax upon tobacco, retroactive in its char- 
acter, which would have very seriousl}^ affected American interests 
involved, I was instructed to intervene with the British Government 



84 PROMOTION OF TRADE IN^TERESTS. 

and make representations as to the hardships which were threatened 
to our trade. So also, when the government of Burmah excluded 
the Standard Oil Company from doing business in that state, and 
when the Federated Malay States enacted a tariff on tin ore, to the 
prejudice of American interests, I was instructed to' examine and re- 
port on the matter and make proper representations to the foreign 
office. In all such instances, the service of the em^bassy in the matter 
intrusted to it might well be expected to be more efficient than that of 
the consuls could be, and in each there was some dixolomatic feature 
involved. Many similar cases might naturally arise which should 
properly be committed to the embassj^ And there are many subjects 
of a large and general nature bearing directly or indirect^ on our 
commercial interests in which the services of the embassy might, from 
time to time, be advantageously invoked under instructions from the 
Department. 

The experience of Great Britain in the matter has some bearing 
upon the question which you have under consideration, but is not 
very pertinent or conclusive in the way of enabling you to reach its 
determination. 

Our consular service was long ago thoroughly sj^stematized in the 
matter of collecting commercial intelligence and placed upon a most 
satisfactory footing in that regard, and has often evoked the admira- 
tion of other nations who were less fortunate in their consular 
methods. It has not thus been found necessary with us to divide the 
collection of commercial information or the. routine attention to com- 
mercial interests, at any rate in this jurisdiction, between the embassy 
and the consulates. In the British service, on the contrar^^, it has 
long been the rule that the first secretary of every embassy and lega- 
tion should make annual or semiannual reports on the commerce of 
the country in which he was residing. This necessarily absorbed his 
attention and led to his being relieved of other duties in the embassy, 
except when he was in charge, and I can not but think that first secre- 
taries in our embassies would be better and more usefully employed 
in the functions in which they are at present engaged. 

Some years ago, during Lord Eoseberry's tenure of the foreign 
office, the London merchants somehow got the idea, which seems to 
have been wholly without foundation, that the interests of British 
trade in foreign countries were not being sufficiently attended to, and 
great pressure was brought to bear upon the foreign office in this mat- 
ter, and an elaborate correspondence was had. Various communi- 
cations were addressed to the foreign office by the London Chamber 
of Commerce and others interested in foreign commerce, to which 
replies were sent. A circular letter was addressed by the foreign 
office to chambers of commerce and other trade associations, asking 
for information and practical suggestions " as to what greater meas- 
ure of support they think might be afforded by British representa- 
tives abroad to British trade," and many replies were received. 

In the previous year Earl Granville, then minister of foreign 
affairs, in dispatches to various embassies and legations, called for 
reports as to the assistance rendered by the Government to which they 
were accredited to the trade and interests of their merchants abroad, 
and many valuable replies were received. > 

On the 9th of April, 1886, Mr. James Bryce, then under secretarjr 



PROMOTION OF TRADE INTERESTS. 85 

of state for foreign affairs, addressed a circular to many of His 
Majesty's consuls abroad, asking for similar reports on the same sub- 
ject, to which many able replies were received from many consuls in 
various parts of the world, in which the whole matter was elaborately 
discussed. With all this information and these suggestions before 
him., Mr. Bryce, on the I7th of July, 1886, prepared a most able and 
elaborate memorandum or report covering the whole subject-matter. 
I append copies of all this correspondence and of this memorandum, 
as submitted to Parliament in " Commercial No. 16 (1886), Part I," 
and " Commercial No. 16 (1886), Part II," and I especially commend 
to your notice Mr. Bryce's remarks on the proposition to appoint a 
commercial attache to every foreign capital where Her Majesty is 
represented in the three paragraphs contained on pages 12 and 13 
of Part II.« 

(I Note Ijy Department of State. — The paragraphs referred to are the fol- 
lowing : 

" Still more weight has been laid upon the suggestion that there should be 
added to the diplomatic service a new class of persons specially trained for 
and charged with the duty of pi-omoting British commercial interests. It was 
even proposed in the House of Commons last session that a commercial attache 
should be appointed at every foi'eign capital where Her Majesty is represented. 
Not to speak of the expense which this would involve, it may be doubted 
whether a commercial attache would at most capitals find enough work to 
occupy him, or whether, by any exertions he might put forth, he could render 
much further help to British manufacturers and merchants than they now 
obtain through the press and private channels of information. His presence 
would be an excuse for the neglect of commercial affairs by the rest of the 
embassy ; there would be little promotion for him ; nor would it be easy to 
secure, except by a large salary, capable men for a post so much out of the 
line of the regular service. Only a person of large commercial knowledge, 
judgment, and experience would be worth having, and such a person would be 
almost certain to prefer a private commercial career to the prospect which 
This special branch of diplomacy would hold out. If such a class of officials 
are needed, it is not necessarily in capitals that they would be most service- 
able ; but the view that they are generally needed seems, anyhow, to rest on 
a wholly exaggerated estimate of the services which diplomatic representatives 
can render to private traders. 

" ]NTore may be hoped from stimulating the interest of our present diplomatic 
and consular officers in commercial affairs and from giving them both a 
stronger motive and better facilities for activity in this department of their 
duties. There will always be ajnong our diplomatists some men with a special 
turn for mastering commercial subjects. Such men ought to be encouraged to 
prosecute inquiries into these subjects and be selected, by preference, for posts 
where proficiency in them was likelj^ to be valuable. As regards the consular 
branch, even if it be not turned into a regular service similar to the diplomatic, 
a question too large to be discussed here, something more than has yet been 
attempted might be done to develop its aptitudes in this direction. Special 
regard might be had in the appointment of consuls to their capacity for com 
mercial work. Opportunities might be given to consuls of obtaining the sort 
of knowledge which would help them, as. for instance, by extending their 
acquaintance with mercantile law and the metliods of commerce, or by visiting 
some of the chief seats of British manufacturing industry. Promotion to a 
higher post might be influenced by the tact and zeal a consul had shown in 
helping English trade and by the mastery of commercial questions displayed 
in his reports. He should be encouraged to communicate more frequently 
with the foreign office on these topics, and, similarly, the commercial depart- 
ment of the office might become to a larger extent than at present the means 
of conveying to our representatives the wishes and inqairies of the mercantile 
conmiunity at home. It is not easy to specify the precise forms which this 
kind of intercommunication would take, nor would it be prudent to anticipate 
large new results from it. All I suggest is that more might be done than is 
now done to focus, by means of the foreign oflice, the ideas and desires of 



86 PROMOTION OF TRADE INTERESTS. 

In a subsequent letter addressed by Mr. Bryce to chambers of com- 
merce and commercial associations of the United Kingdom, be sum- 
marized the suggestions which had been received and the results of 
the consideration of them by the foreign office, a copy of which will 
be found in Part II. In this letter the particular subject of commer- 
cial attaches is thus disposed of : 

14. That commercial attaches he appointed to embassies and legations. — This 
suggestion was fully discussed in a debate in the House of Commons last session. 
Its adoption would involve considerable expense, and until more powerful 
reasons can be deduced on behalf of such a proposal, the secretary of state can 
not pronounce in its favor. 

Afterwards, in 1897, under Lord Salisbury's government, there was 
a good deal more correspondence on the general subject, which ap- 
pears in Commercial, No. 5 (1897), herewith inclosed, and on page 
20 there is inserted the reply of the under secretary of state for 
foreign affairs in the House of Commons to a question asked in the 
House, showing the appointment of commercial attaches for Germany 
and for Spain and Portugal, and the reorganization of the commercial 
attacheships at Paris and in Russia and western Asia, and on page 
28, under date of March 20, 1897, the fact is stated of the reAdval of 
the post of commercial attache at Constantinople and the reasons 
therefor. 

After a perusal and careful consideration of all the information and 
matter herewith submitted, I am unable to see that either the ap- 
pointment of a commercial attache in this embassy or the adoption 
here of anj^ other of the changes suggested in jomy circular of July 
29 would tend to advance the interests of American trade in Great 
Britain. The transmission through, the embass}^ to consular officers 
in this country of instructions to the Department of State for particu- 

those who in England are employed in foreign trade and to radiate, so to speak, 
these ideas from home over all those places wherein help is sought or whence 
information is required. 

" It does not, however, follow that the notion which lies at the bottom of the 
proposal to appoint commercial attaches is an unfruitful one. We, in England, 
have much to learn from other countries, not only as respects the methods by 
which they conduct their industries and their commerce, but also as regards 
their legislation, the condition of the masses of their people, the various means 
by which they deal with those social and educational problems which confront 
all great modern states. Any one who has been accustomed to travel on the 
continent of Europe or in North America is daily struck by the number of points 
in which the experience of other countries throws liglit on our difficulties — 
sometimes in the way of suggestion, sometimes in that of warning — and is led 
to desire that a more constant and systematic means existed than we now pos- 
sess of obtaining and rendering available, for the benefit of Britain and her 
colonies, the results of that experience. Of late years much has been done to 
procure such data, both by sending out occasional commissioners to inquire on 
specific subjects, and by requiring special reports from Her Majesty's representa- 
tives in foreign countries. We have a commercial attache at Paris, whose re- 
ports on trade and industrial questions are excellent, and who should be fre- 
quently instructed to report on these questions as they arise in different parts 
of France. But our diplomatic representatives (even supposing that they 
could quit their posts to travel when required) are not always qualified by 
their knowledge, by their literary skill, or by the possession of a keenly ob- 
servant mind, to obtain the right sort of information, or to present it in ef- 
fective form. There would be ample occupation for two or three men of 
exceptional aptitude in going from place to place to report upon subjects be- 
longing to what may be called the realm of economic and social progress. One 
might be kept busy in the United States, where the diversity of laws and the 
continual development of new branches of industry furnishes an almost bound- 



PEOMOTIOIT OF TRADE INTERESTS. 87 

lar inquiries and of the answers to such instructions would appear 
to me to be a work of supererogation in this particular jurisdiction. 
In respect to particular inquiries which may from time to time be 
sent b}^ the Department of State to consular officers in Great Britain, 
the sources of our information in London are equally open to the con- 
sular officers, who are presumably much better informed than we are 
•on trade questions, and the embassy would not be likely to have any 
special knowledge which would facilitate the inquiry or help to make 
it more comprehensive or more exhaustive. 

I do not think that any consular officers of the United States 
noAv in Great Britain, or who are likely to be appointed to serve here, 
would embody in any reports to the State Department matter likely 
to give offense or to cause the ambassador embarrassment in his diplo- 
matic capacity, and no such instance has come to my knowledge in 
the past. If such a thing were possible in the future, the right and 
power of revision, amendment, or suppression reserved to the Depart- 
ment of State would be ample protection. 

I think also that such supervision and power of revision, correc- 
tion, and criticising, if placed in the hands of the embassy, would 
inevitably lead to friction and greatly hamper the independence and 
initiative of the consular officers, and lead them to be much less 
thorough in their work. Their appreciation of the importance of 
the duties intrusted to them consists largely in their constant sense 
of direct responsibility to your Department, without any dependence 
upon or intervention of the embassy ; and as to errors of fact or judg- 
ment in their reports, it seems to me that these, if they occur, can be 
dealt with to better advantage, and with greater regard to uni- 
formity, by that bureau of the State Department which has charge 
of commercial matters than by the ambassador. 

less field for instructive inquiry ; two more in the continent of Europe, with 
most of whose states we have frequent negotiations on commercial questions in 
which a knowledge of their commercial condition becomes important. Although 
commerce and manufactures would afford the most frequent occasions for re- 
ports, one might suggest a great number of other topics to which the inquiries 
of such roving commissioners might be from time to time directed." 

On page 14, Mr. Bryce thus summarizes his conclusions : 

" I may conclude by recapitulating briefly the conclusions to which the com- 
munications received by the foreign oiiice and the foregoing examination of their 
contents seem to point. 

" The foreign office may seek to continue to be itself useful, and to utilize the 
services of those who act under its instructions abroad in the following direc- 
tions : 

" Increased activity by diplomatists and consuls in affording information 
and help to Englishmen seeking to do business abroad. 

"Action (firm but cautious) by diplomatists in remote countries in counter- 
acting the pressure used by the representatives of other states to push the mer- 
cantile interests of their countrymen. 

" More precise definition of respective duties of diplomatists and consuls in 
procuring information. 

" Prompter transmission of current commercial news from abroad. 

" More regular transmission of annual reports. 

" Better arrangement and prompter publication of reports. 

" Publication in a special journal of current commercial foreign news. 

" Sending home of samples of goods and foreign products for exhibition in 
commercial museums (when established) or otherwise. 

" Greater encouragement to members of diplomatic and consular services to 
master commercial questions, and better facilities therefor. 

" Appointment of two or three qualified persons to be sent abroad to report 
upon commercial and industrial questions of immediate interest." 



88 PEOMOTION OF TEADE INTERESTS. 

It follows, therefore, that in my opinion better results will be 
obtained in the growing work of equipping our manufacturers and 
exporters for effective competition in the world's commerce by keep- 
ing the two services distinct, as they have heretofore been, and hold- 
ing each to a strict accountability for the discharge of its own proper 
functions and duties. 

The second consideration set forth in the circular of July 29, viz,. 
the limitations of the consular service in its lack of diplomatic status 
in obtaining official information at first hand, certainly has no ap- 
plication to consular officers w^ithin this jurisdiction. They have 
always obtained all the official information they required without 
our intervention. 

Of course it is possible that such a chance might happen as that 
official information which they desire should be refused to them by 
some public office by reason of their want of diplomatic capacity. 
But as it never has happened hitherto, will it not be quite safe to rely 
upon the known readiness of the ambassador to assist in such a rare 
case when called upon rather than to make a radical change in a 
system which has heretofore worked well ? 

But I am far from thinking that the embassies and legations, and 
this embassy in particular, can not, on proper occasions, supplement 
the work of the consular service in promoting American trade in its 
ever-growing competition with the manufacturers and merchants of 
other nations in the markets of the world. Past experience has shown 
that the embassy can be made useful in examining and reporting 
upon special subjects of national and international interest, and many 
large questions involving our commercial interests will from tim.e to 
time arise, in the investigation of which the embassy will always be 
ready to render its best service. 

Joseph H. Choate. 

Inclosures : * Parliamentary publications. — 1, Commercial No. 16 
(1886), Part I; 2, Commercial No. 16 (1886), Part II; 3, Commer- 
cial No. 5 (1897). 

Supplementary. 

American Embassy, 

London, November 29, 1904- 
With reference to my dispatch. No. 1467, of the 19th instant, rela- 
tive to the promotion of trade interests, I have the honor to state that 
Sir Henry Austin I^ee, commercial attache to the British embassy^ at 
Paris, has been recently given the rank of councilor of embassy, which 
confirms the suggestion contained in my report above mentioned — 
that as mere attaches without higher diplomatic standing these 
commercial attaches were not found so advantageous as had been 
expected. 

Joseph H. Choate. 

a Filed in Department of State. 



PROMOTION OF TRADE INTERESTS. 89 

Opinions of Consnl-General. 

LONDON. 

I have the honor to report upon circular " Promotion of trade in- 
terests " as follows, limiting my remarks to conditions in the United 
Kingdom of Great Britain and Ireland : 

First. The relations between the American embassy and the Ameri- 
can consulate-general here are now, and I am informed have been al- 
ways in the past, most cordial and friendty. 

Secondly. I knoAv of no information of a public nature that would 
be of interest to trade or commerce that can not be had promptly by 
the consular ser^dce. All information with reference to shipping, 
trade, commerce, manufactures, etc.. that is published is put on sale 
promptly, and I am quite of the opinion that any diplomatic officer 
who put himself in the attitude of seeking to get information in the 
shape of advance sheets, or advance reports, to give his OAvn govern- 
ment or people ahead of the regular official publication would soon 
lose more in standing than he would gain. The consul comes in con- 
tact with the class of men who are interested in developing trade and 
commerce — the men who cause the wheels of industry to go round; 
the embassy does not. The embassy does not have the opportunity to 
meet these men, and would not meet them unless specially sent for. 
On the other hand, the business men, practically representing all 
avenues or channels of trade and commerce, come to the consulates, 
and the consuls do not hesitate to inquire into business and business 
methods. In doing so they are in no danger of disturbing diplomatic 
relations between the governments. 

Possibly conditions are different here from those in other countries, 
but I can not imagine a condition arising here or in this jurisdiction 
where legitimate information was asked for about trade and com- 
merce that the consul in the district could not furnish ; and as for this 
consulate-general, situated at the capital of the United Kingdom, the 
various officials have been to me most courteous and obliging at all 
times, and as they have been to me, so I am informed, they have been 
to my predecessors. 

I shall take the liberty of enlarging upon the scope of 3"0ur inquiry, 
being of the opinion that to understand the situation thoroughly con- 
ditions should be stated plainly. I feel somewhat alone in making 
this kind of report, having seen the unanimity with which the consuls 
report approval of the proposed new departure; and yet. so far as I 
can find on inc[uir3^ no one has had occasion to appeal to the embassy 
for information. 1 can see no good to come from it. In fact, I can 
only see a duplication of work — facts, figures, statistics, conditions 
of trade and commerce that must be ascertained, compiled, and pre- 
sented in American shape. To do this means work, if done well. 
For it to be done again by the embassy means more work, and unless 
done thoroughly and by competent men, it is worse than not being 
done at all. It divides the responsibility. I sent you recently one 
report of 143 pages of carefully compiled statistics pertaining to in- 
ternational trade and commerce. I can not see why an ambassador 
should be burdened with the task of going into this kind of work. 
No ambassador would do it ; and if the responsibility as to the accu- 
racy Avere turned over to the embassy, naturally the ambassador 
"would be chars'ed with and held to account for inaccuracies. 



^0 PROMOTION OF TRADE INTERESTS. 

^ Further, is the ambassador better equipped b}^ reason of his posi- 
tion or is the embassy better fitted to deal with the many details that 
€ome within the duties of consuls? The ambassador has four secre- 
taries — most excellent and accomplished gentlemen sociall}^ and diplo- 
matically, but none of them with the practical experience or training 
in manufacturing, trade, or commerce which would qualify them to 
go into or work up the details of examining, correcting, or testing the 
accuracy of or approving or disapproving the many reports of the 
many consuls of this United Kingdom that are prepared and for- 
"warded. 

With this statement of existing equipment, we come down to clerks 
at the embassy, and I am not prepared to believe or admit that they 
are as competent to supervise the reports of the various consuls as the 
consuls who make and prepare these reports and prepare them in a 
manner to be understood and meet the wants of the men engaged in 
developing and extending trade and commerce of the United States. 

Nearly all of the American consuls in the United Kingdom are edu- 
cated men, authors and writers on economic questions. They are 
mostly newspaper men, trained in gathering news — men who ]?:now 
news when they hear it and a new thing when they see it. These con- 
suls are men of high character and of good habits, I think, without ex- 
ception, and especial!}^ qualified and well fitted for the duties and 
work assigned them. I know they are better adapted and better 
equipped to render valuable service to our country in this class of 
detail work than is the embassy with its present excellent but limited 
force, because they come into personal contact or touch with the men 
of trade and commerce in their respective districts. The embassy 
does not come into touch with this class of people, and it is better for 
the diplomatic service that it does not. As it is, the embassy — the 
diplomatic service — is not held responsible for the many annoyances 
that are disposed of hj the consular service in the administration of 
the tariff and customs rules or the many regulations necessary to 
direct and systematize international trade. 

I might add that other nations, and I know this from their repre- 
sentatives, realize that the American consular service is the best of 
any nation. Of course it is not perfect ; it can be improved in many 
ways, and the present suggestion would aid by adding a considerable 
force to sui^ervise at the embass}^ the work done b}^ the consuls. . But 
I add, without request, do not lower the dignity of your diplomatic 
service by tangling it up with the burdens and jealousies of trade and 
tradesmen without at least some promise of compensating benefits. 

If I may be permitted to suggest, the place to supervise and edit 
the consular reports is Washington. The right man there, to call for 
data such as trade and industry in America need, and to present the 
information in an intelligent and comprehensive form — conditions 
abroad compared with conditions in America — will produce better 
results than a cursory supervision abroad. 

H. Clay Evans, Consul- General. 
London, Novemher 30, 190 Jf. 



PROMOTION OF TEADE INTERESTS. 91 

Opinions of Consular 0-fficers, 



BELFAST. 



In compliance with circular, '-Promotion of trade interests," I 
have the honor to report that, m my judgment, it Avould greatly facil- 
itate the preparation of reports "^ if instructions Avere transmitted 
through the diplomatic officers, provided it were practicable for such 
officers to attend to the matter, and make notations indicating prob- 
able sources of information, such as statistics or other valuable data 
which it is sometimes difficult for consular officers to obtain. Of 
course this would only apply to sj^ecial, comprehensive reports, as 
consular officers can generally obtain information for local reports 
after investigation in their own districts. As far as this office is con- 
cerned, there is at present no cooperation between the diplomatic 
and consular officers in making any reports, but it would seem that if 
such cooperation were sanctioned hj the Department and established 
as a means of obtaining commercial information, it would be mutu- 
ally beneficial to both services. 

Edward Harvey, 
Vice and Deputy Consul. 

Belfast, Septem,ber ^^, lOOJ^, 



BRABFOKD. 

Eephdng to your circular, " Promotion of trade interests," I would 
say that, taking into consideration all nations, I have no ver}^ definite 
opinion as to the proposed plan of coordination and improvement of 
existing facilities for collection of commercial intelligence, but, so 
far as England is concerned, and especially the Bradford district, I 
can not see how the suggested improvements or changes would be of 
substantial benefit. The commercial conditions in England, as 
regards the introduction of American goods, it seems to me, are fairly 
well understood in the United States. At present all needed or 
useful information is usualty obtainable by means of communication 
with the consids in different parts of England. 

To get information asked for by American manufacturers or mer- 
chants I have quite generally found to be practicable— in fact, I 
feel that manufacturers, officials, and others have been very obliging 
in regard to it. 

It strikes me, so far as England is concerned, that to make con- 
sular officers more especialh^ agents for extending the trade of the 
United States would hinder rather than help their efficiency, as I 
should fear it would lessen the regard the English people now have 
for them. 

I thinlv if the Government of the United States is to extend or 
enlarge the scope of its efforts to further our trade in foreign coun- 
tries that, so far as this country is concerned, it would be better to 
have a commercial agent charged especially with the duty of collect- 
ing such information as would be of special value to American man- 
ufacturers and tradesmen. I have not attempted to answer every 
suggestion or inquiry in your circular for the reason that I have not 



92 PEOMOTION OF TEADE INTEEESTS. 

the information or the ready means of getting it to do so intelligently, 
but have given simply the impressions that have come to my mind, 
and feel that others who are more competent will give you the 
fuller information required. 



Bradford, Sefteirhber 28^ 190 1^. 



Erastus S. Day. Consul, 



BRISTOL. 



To the Department's circular. ''Promotion of trade interests," I 
have the honor to reply as follows: 

The circular states that the extension of commerce has become one 
of the chief aims of world diplomac}^, and that suggestions are 
desired which may tend to systematize and improve existing facilities 
for collecting commercial intelligence. 

Such intelligence naturally falls, broadly speaking, into one of 
two classes. 

One is analytical, statistical, general, deals with figures of imports, 
exports, consumption, etc.. and draws deductions from completed 
official or other reports. It surveys large areas, treats of the trade 
of countries and ports as a whole, makes inferences from completed 
tables as to the movements of a particular industry — deals, in fact, 
with the past, even though that past comprise a period which ended 
the day before. This deductive branch of statistical science is devel- 
oped generally in the United States to a point of completeness and 
accuracy which has won commendation from most nations. 

The other bears that relation to the deductive branch which report- 
ing bears to editing. It deals with isolated facts as the}^ are 
observed at the moment. It can not generalize. It does not have 
before it figures which justify the statement that a country has 
increased or decreased its exports of a particular commodity by such 
a percentage in a given time. It can not exhibit general tendencies 
or trace the ebb and flow of the streams of commerce. It obtains its 
knowledge at first hand, from observation of the workings of a par- 
ticular commercial enterprise. 

Its methods are the opjDosite of those followed in the first. It 
requires a difi'erent ability, a diiierent order of man, a different life 
training. Instead of stating, after a study of statistics, that imports 
of wire nails from the United States fell off 5 per cent and that im- 
ports of German wire nails increased by 10 per cent during the 
previous j^ear, it sees the alteration while it is going on. It inquires 
into the causes. It attempts to reach the shipper with information 
while the conditions remain unchanged. 

The demand for this kind of information has become so insistent 
that it has crystallized into a ncAv conception of the consul and his 
duties. It is the third change within a hundred years. A century 
ago, he was regarded as concerned with shipping and crews. Fifty 
years later, owing to the introduction of the invoice system, he was 
transformed, in the popular mind, into an advance picket of the cus- 
toms. Now he is regarded as the pioneer of trade, and his other 
duties, performed in the privac}^ of his office, attracting little pub- 
licity, appear to be almost forgotten by the people. 



PEOMOTION OF TKADE INTERESTS. 93 

It is obvious that I can not have the wider experience which my 
colleagues in larger ports and greater world centers must have, but 
I receive a considerable number of letters which show me that an 
increasing number of our manufacturers are seeking intelligent 
direction in the search for a foreign market for their particular 
commodit}^ Some of these would-be" shippers, one may read between 
the lines, are not manufacturers on so large a scale as will justify a 
costly foreign campaign, or it may be that the commodity which they 
manufacture does not admit of a profit which will justify elaborate 
exploitation in a new^ market. It may happen, also, that a manufac- 
turer can afford an organized attempt on his own part, but that he 
seeks preliminary information. 

This new demand for what is often somewhat loosely called " prac- 
tical information " has been recognized by the Department and re- 
sponded to by consuls. It may be thought advisable, however, while 
the subject generally is under discussion to consider w^hether some 
further special response to this rapidly developing popular demand 
might not advantageoush^ be given. 

The suggestions of the circular are admirably conceived for effect- 
ing- excellent results. If they shall be carried out, repetition and 
overlapping can be almost entirely eliminated. What is more im- 
portant, the consular corps must necessarily receive stimulus and 
encouragement from the forging of the proposed link with the, diplo- 
maitic branch of the service. The improvement, however, will proba- 
blj^ be most evident in connection witli the collection of the scientific 
and analytical kind of commercial information. I venture to sug- 
gest one way of effecting an advance in supplying the other. 

The Department refers to the matter of commercial attaches. Such 
reports as I have seen of these attaches of various European gov- 
ernments, admirable as they are, have dealt almost entirely with 
statistics. Their work has been of great value in marking out the 
channels of commerce and in noting the rise and fall of the tides of 
trade. It is of a kind useful to a nation considering possible legis- 
lation, or to a scientific statistician. It may be of advantage, no 
doubt, to the individual exporter, but that is not its main design. 
It will be admitted, I think, that commercial attaches have not been 
appointed primarily for this purpose. 

I respectfully submit the suggestion that the United States might 
adopt the idea of the commercial attache, but considerably altered 
to suit the changed conditions. England has, for a long time, enjoyed 
p great export trade. The machinery for obtaining information 
from private agents and correspondents has long existed. The testi- 
mony of the great manufacturers and exporters given before a royal 
commission, some years ago, w^as substantially unanimous in assert- 
ing that practical, direct information about a particular industry 
was not expected through government channels. But such is not the 
view of our manufacturers in this period of transition into an export- 
ing nation; and there is the more justice in their attitude when we 
remember the distance from markets. An Englishman could hardly 
ask from his Government information which he himself could gain 
in a journej^ of a few hours; but our exporters are thousands of miles 
from European buyers. 

It may be admitted, at once, that no government can do as much 
for the individual merchant as he can do for himself ; and there Avill 



94 PEOMOTIOISr OF TEADE INTERESTS. 

probably always be in the future, as there have been in the past, a 
few who will ask too much of a system and of those who are endeavor- 
ing to carry it out. ^^Tiat can be done, however, and what can be 
done at the present moment witli peculiar effectiveness, is to provide 
comprehensive, accurate, and minute surveys of special fields in par- 
ticular countries; surveys which concern themselves with statistics 
to just the same extent as would a broad-minded and able commer- 
ci?-l traveler. 

It is this kind of man who might be, at this moment, it appears to 
me, utilized with high advantage. 

It would embarrass the inquiries of such a man to be attached to 
an embassy or to a consulate-general. Instead of being attached to 
a particular country, he would be accredited to a special branch of 
commerce. His concern is with the people, the traders, the manu- 
facturers of a nation, and not with its governmental departments. 

If it be argued that it would be difficult to discriminate as to what 
industries should receive such aid, I would answer that certain prin- 
ciples could be laid down which would act almost automatically, and 
would limit the number of agents required to a very small number. 

The great industries alreach^ firml}^ established, having already 
their own channels of communication, their own representatives 
abroad, do not need this kind of aid. This consideration eliminates 
among others the leather business, which is in daily cable touch with 
its correspondence all over the world; the petroleum industry; the 
export trade in cotton, in cereals, and in provisions. On the other 
hand, our manufacturers— to specify a few industries — of agricultural 
implements, of vehicles, of improved types of gas and motor engines^ 
of paints, oils, and varnishes, of hardware, of furniture, are earnestly 
seeking intelligent direction toward foreign markets. 

I venture to think that the onus of proving its need of such official 
aid should be laid on the industry itself. Half a dozen manufactur- 
ing interests, selected on account of the capital engaged, of the num- 
ber of men employed, and of the existence of an export trade, might 
be informed that the Department was prepared, if these industries 
established their need of such action, to procure for them a technical 
and minute account of the conditions under which their respective 
commodities are sold abroad, and an expert estimate of the possibili- 
ties of their establishing or increasing their business in certain speci- 
fied countries. I venture to think that the information would be 
received with high appreciation, and that earnest effort would be 
made to profit by the offer. 

The commercial representative who would be sent abroad under 
such conditions would necessarily be an expert in the particular 
industry on which he is to report. He would visit successively the 
several countries to which he would be directed by the Department. 
His reports would have an essential and minute accuracy, which can 
characterize the work only of one possessing intimate and special 
knowledge of the subject in hand. They would have more than a 
momentary value — great as that might be. When he had surveyed 
all likely fields, his volume would be a guide book of the world for 
a particular industry, and would, for most countries, and in many 
respects, be a standard of reference for years to come. 

The above suggestions are respectfully submitted to the Depart- 
ment in frank response to the instructions received, and with the 



PROMOTION OF TRADE INTERESTS- 95 

full understanding that controlling reasons, of which I can not be 
aware, may prevent favorable consideration of suggestions which are 
the result of some years of observation and experience. 

LoRiN A. Lathrop, Consul, 
Bristol, Octoler 18, 1901^. 



CORK. 



I have the honor to acknowledge the receipt of circular " Promotion 
of trade interests." Having been asked to express my views on the 
subject, I beg to say that the idea appears to me to be a good one, pro- 
vided the diplomatic officers are willing to undertake the duties 
mentioned. As far as any information within my district is con- 
cerned, I have not had any difficulty in procuring anything desired,, 
either for my reports to the Department or for replies to the many 
letters of inquiry received from the merchants and manufacturers 
in America. I have found the business men in my district most 
obliging and courteous when asked for information concerning their 
business. 

Daniel Swiney, Consul. 

Cork, August 22, 1901^. 



EDESTBUKGH. 



Complying with the circular request of August 4, for an expres- 
sion of views on the plan set forth for promoting American trade 
interests abroad, I beg, respectfully, to say that if the diplomatic 
service can become a regular and active auxiliary in the work of 
advancing our trade interests, without risk of embarrassment in the 
exercise of its essential functions, highly beneficial results would, 
in my opinion, flow from the systematic participation of our embas- 
sies and legations on the lines marked out in efforts to furnish 
American manufacturers and exporters with trade intelligence. 

From my point of view, there seems little room for doubt that 
cooperation between the diplomatic and consular services, if directed 
only or mainly to inquiries relating to generail commercial and 
industrial conditions or certain phases of such conditions and to 
the market for specified classes of goods in a country as a whole, and 
similar broad questions, would greatly enhance the value of the con- 
sular service as an instrument for the expansion of foreign trade. 
The apparent advantages of such a system may be concisely stated: 

1. A preliminary investigation by a commercial attache, or other 
member of an embassy or legation, of the particular subject sub- 
mitted to the embassy or legation by the Department of State. The 
collection of official data and the formulation of inquiries based 
thereon, addressed to consular officers, would probably give these 
officers clear guidance to definite ends, enabling them to make com- 
prehensive, well-digested, and satisfactory reports. 

2. The comparative quickness of communication within a country 
would make it practicable for a consular officer to obtain any sup- 
plementary or special instruction he might require as to the nature 
and scope of the report expected from his district, and for a diplo- 



96 PEOMOTION OF TRADE INTERESTS. 

matic representative to offer voluntary suggestions in re sufficient 
data or inadequate reports. 

3. Full and accurate statistical information could be procured at 
the capital through the embassy or legation. 

4. 'The annotations made b}^ the diplomatic representative upon the 
group of reports from consular officers should contain important facts, 
opinions, and suggestions. 

It seems to me that, in coordinating the two services for the special 
object in view, it would be advisable to provide that all correspondence 
between embassies or legations and consuls and commercial agents 
should be conducted through consuls-general, under open cover, and 
reports sent to the diplomatic representatives through consuls-general, 
under open cover, thus (1) preventing friction and confusion, (2) 
keeping consuls-general in full touch with the commercial work of 
the consular officers under their respective jurisdictions, and (3) pre- 
serving the line of demarcation between the diplomatic and consular 
services. 

Within the limitations indicated, I think that there is a wide field 
for an extension of the usefuUness of our embassies and legations in 
developing the possibilities of the consular service as an aid to 
American producers and exporters. 

Rurus Fleming, Consul. 

Edinburgh, Septemher 1, 190 Jf. 



DUBIiES'. 



In reply to the circular of August 4, regarding the promotion of 
trade interests, I have the honor to report that I think it would be a 
mistake to have consular reports sent through our legations and em- 
bassies if they were to be subject to modification or change by the 
diplomatic officers. ^¥hile I am sure that diplomatic officers would 
only make or suggest changes in the reports when they felt sure of 
their ground, I can not see how their opinions could possibly be en- 
titled to as much weight as the opinion of a consular officer, based, as 
the latter are, on his observation and experience in the district con- 
cerning which he is reporting. 

Where the information asked for can only be procured through the 
courtesy of the government, it seems to me that the reports should 
be made by the diplomatic officers. 

I think our present system would be improved by the appointment 
of commercial attaches, if they were given power to call on consular 
officers at any time for information desired, and if the reports were 
published without any indication as to their origin. Under our pres- 
ent system, a consul's usefulness in obtaining information is often very 
much restricted by his reputation for efficiency. I have often seen 
widely read commercial papers advocating the furnishing of inaccu- 
rate and misleading information to' our consuls as a means of counter- 
acting their " objectionable inquisitiveness." And this inquisitive- 
ness is emphasized by the republication of the consul's reports in the 
local newspapers in the consular district. If the reports were anony- 
mous, they would escape notice in the consular districts, while the 
Department's imprimatur would insure their receiving attention at 



PROMOTION OF TRADE INTERESTS. 97 

home. Of course, the present system is more satisfactory to the 
vanity of consuls, but I do not think it is necessary to consider that in 
attempting reforms. 

A. DoNN Piatt, Acting Consul. 
T)\]BiA-N^ August 29,1904. 



DUXFEKMLINE. 

In my experience here as consul in seeking information for reports, 
special or otherwise. I have never had any difficulty in obtaining it 
from local official sources. I have, in a few rare instances, however, 
met with a point-blank refusal from private concerns to give any infor- 
mation whatever relative to their trade that would be of value to 
American competitors. In such instances, I have usually been obliged 
to procure the information wanted through indirect channels. It 
would probabh' be beyond the power of a diplomatic agent to aid 
a consul in obtaining information from private houses which would 
be refused to a consul on competitive grounds, except perhaps, to 
suggest to a consul lacking in resource how to obtain the information 
indirectly. 

There is no doubt, in my opinion, that cooperation of diplomatic 
representatives with consular officers would greatly increase the power 
and facilitate the means of the consular service to obtain official in- 
formation at first hands, especially in official centers of this country 
and in all continental and eastern countries. In any circumstance, 
it would strengthen the hand of a consul to have the embassy or lega- 
tion nearest his post prepared and equipped to cooperate with him, 
when necessar}^, to procure information called for by the Department. 

If the answers of consular officers to instructions from the Depart- 
ment were to become subject to revision by diplomatic representatives, 
the practice, when successfully established, would, to my mind, prove 
a valuable help to consuls and greatty increase the efficiency of the 
service. Of course, in order that a consul should know what value 
was placed upon his efforts, he would require to be advised as to what 
suggestions, corrections, additions, or eliminations were made by the 
diplomatic agent, if any, and the final disposition of the matter b}^ the 
Department of State. 

J. IS". McCuNN, Consul. 

DuNFERMLixE, Octohev 5, 190 1^. 



Fi^kXMOUTH. 

I have the honor to acknowledge receipt of the circular of August 4, 
regarding a plan for the coordination and im]3rovement of the exist- 
ing facilities for the collection of commercial intelligence and the pro- 
motion of American trade interests. I have read the circular with 
much interest, and would remark that many of the questions that I 
receive from Washington are on matters of law and custom, which 
are the same throughout the United Kingdom. I have long been of 

H. Doc. 245, 58-3 7 



98 PROMOTION OF TRADE INTERESTS. 

the opinion that these conld best be answered from a center such as 
London, and that the mnltiplication of consuhir reports on such sub- 
jects was of no value. My district is so thinly populated and so 
remote from the great distributing centers that I do not feel that mj 
ex23erience justifies my expressing any further opinion. 

Howard Fox, Consv.l- 
Falmouth, August 30^ 190Jf, 



GLASGOW. 



Complying with the request contained in circular of August 4 for 
an expression of vieAvs on the suggested plan of a working agree- 
ment between diplomatic and consular officers for obtaining commer- 
cial intelligence. I have to say that I see no reason why it should not 
be given a trial. The present system (if it can be dignified as a 
system), while fruitful of good results, in my opinion is capable of 
improvement. There is something lacking. The annual reports of 
consuls, as published in the Commercial Eelations in accordance 
with paragraph 592 of the Consular Regulations, contain so much that 
is mere '* filling '' that the publication, mildly speaking, is unsatis- 
factory, and its beneficial effect is not commensurate with the expense 
involved in its compilation. Moreover, some things are published 
which might be omitted with advantage to American interests. Re- 
specting this statement, the fact becomes more apparent when the 
varying conditions of counti'ies are taken into consideration. A pub- 
lication of a certain item of information, while perfectly harmless as 
to one country or a group of countries, may, because of certain local 
conditions, be very prejudicial as to some other country. A capable 
censor in the country in which the report originates, familiar with 
the peculiarities of local conditions, could suggest changes in such 
reports that would eliminate objectionable features. It may be said 
that the consids themselves are in position to be the best judges of 
what is proper, and this is true, but the consul can easily shift the 
burden b}^ leaving his superiors to edit his reports, after he has given 
what he conceives to be the facts. His superiors, hoAvever, not being 
in the country, are not in position wisely to determine what facts can 
safely be made public. 

I clo not think the present system affords opportunity sufficient for 
the superiors of the consuls, from time to time, to A^sit the indiA'idual 
consulates. Personal contact Avhere the Avork is done would be mutu- 
ally beneficial, and lead, I haA^e no doubt, to more efficient serA'ice. I 
haA^e been at this consulate scA^en years, and with the exception of a 
hurried call Athich I receiA^ecl from the late Consul-General Osborne, 
three months after I Avas installed, I have not had a call from any of 
ray superior officers. It ma}^ be said that they haA^e such confidence in 
mA^ capacity that their presence here is not deemed necessary. , This 
is indeed flattering, but it is not sufficient. If I am doing good work, 
it would not interfere with it Avere my superiors, now and then, to 
" drop in.'' satisfy themselves of the fact, and tell me so ; and if I am 
not doing as Avell as I ought, a timely A'isit from a chief might dis- 
coA'er the defect and giA^e a Avord of adA'ice. Paragraph 13 of the 
Regulations is not broad enough. The consul-general hesitates to 



PROMOTION OF TRADE INTERESTS. 99 

make application for permission to go on what some hypercritical 
person may style a mere " junketing " expedition at the cost of the 
taxpaj^ers, ancl so, unless ordered, he does not go. But still better 
effect could be realized from inspections made by one of the Secreta- 
ries of State. At least, the inspecting officer should have an official 
rank superior to the consuls. I am using the word " inspection " in 
the broader sense of best means to gain commercial intelligence. 

The plan suggested in the circular, while not as comprehensive as 
I would like to see tried, yet, it seems to me, has merit and should be 
given a chance. 

Samuel M. Taylor, Consul. 

Glasgow, August 31^ 190 Ij.. 



I have the honor to acknowledge the receipt of a circular from the 
State Department having for* its subject the "Promotion of trade 
interests '' of America, and to that end proposing the cooperation of 
the diplomatic corps with the consular service. The accompanying 
circular asking an expression of views from consular officers has also 
reached me. T3efore giving an answer to the questions asked, please 
let me say : 

The facts which have made the most decided impression upon me 
during my brief time in the service are the want of a systematic and 
comprehensive plan of consular work, the consequent loss of much' 
valuable time and labor, and the absence of a restraining force on con- 
suls caused by the lack of a near-b}^ authority. It should be explained 
that I have been in the service less than a year, and that I came 
directly from an office where strict discipline was enforced and con- 
secutive work demanded. The change to a situation where the consul 
is, to a large degree, master of his own time and methods is doubtless 
one reason for this impression. A longer service might modify my 
views somewhat in this respect. 

Some of this lack of discipline in the 'Consular service and a part of 
the desultory methods of work prevalent have doubtless resulted from 
the old plan of appointing consuls, when the service was used simply 
as a political perquisite. The change for the better in this respect 
has been marked, but there are still enough consuls of the old class in 
office who are unable to recognize the altered spirit and who fail to 
respond to the new demands to color the work of the service to an 
appreciable degree. This is one cause of whatever lack of efficiency 
has been noticed in the consular corps. Another, and a more potent 
cause, perhaps, is the absence of near-by authority and the necessity 
of leaving consuls largely to their own control and initiative. This 
is an unavoidable result of the distance from Washington at which 
consuls are placed, and the impossibility of the State Department 
keeping these officials under constant and watchful supervision. It is 
highly creditable to the consular corps that, under such conditions 
and subjected to many temptations, so few of its members have been 
found untrustworthy. With a near-by authority to which consuls 
would bs accountable, and which could also collect and disseminate 
Information, study the local industrial situation comprehensively, 



100 PROMOTION OF TRADE INTERESTS. 

and aid with advice and direction, much could be done to add to the 
efficienc}^ and productiveness of the service. 

A more direct and acknowledged connection with the diplomatic 
corps would aid consuls themselves. It would add a new dignity and 
importance to the office and so increase its influence. I regret to say 
that there is a depreciatory opinion widely prevalent in America con- 
cerning consuls. The general impression appears to be that these 
officials are about on the ievel of a hotel call boy for whom anyone 
can wdiistle when their services are needed, and to whom a nickel can 
be tossed when the errand is performed. I suppose I have received 
during my elevei\ months' service 500 or 600 letters from business 
firms and manufacturers in America asking for information on all 
sorts of subjects. To get the information required has often taken 
much time, and on occasions some expense; but the work has been 
done ungrudgingly. Every one of these letters has been answered 
promptly. But out of these 500 or 600 correspondents only two have 
had the courtesy to acknowledge the receipt of my reply and thank 
me for the service. Perhaps if these people knew that the consular 
service was a cooperative branch of the diplomatic corps, they would 
be more thoughtful. 

Some of the same opinion of consuls, though to a less degree, exists 
in England, and I suppose in other European countries. Here it is 
largety the result of the moderate salaries paid consuls, their conse- 
quent inability to attach much importance to their office, and their 
apparent nonrecognition by the diplomatic representative from their 
own country. A more generous treatment by the home Government 
and a frank recognition by and cordial cooperation with the diplo- 
matic corps w^ould add sensibly to the standing and influence of 
American consuls abroad. 

Whether the diplomatic corps would be the center best adapted 
for placing such authority over consuls as would be necessary to 
insure cooperation would depend largely upon the kind of man 
chosen for the office and attached to each embassy. If the choice fell 
upon one who never saw the inside of a factory and who knew noth- 
ing of the fierce competition inseparable from modern industrial 
life, whose chief recommendation was his ability to look well on 
parade and " shake his heels in a ballroom," I do not think that the 
result would be encouraging. But if a practical man, with a knowl- 
edge of industrial conditions in his own country and in the country 
to which he may be sent, and having the faculty to grasp the situa- 
tion and the tact to work with consuls appointed, I am inclined to 
believe that good results would follow. 

Consuls are naturally jealous of their authority in their respective 
districts and sometimes impatient of outside interference, and at 
first there might be friction betv^een them and the diplomatic repre- 
sentative and a disinclination to work in harmony ; but this disposi- 
tion would quickl}^ disappear when the system was once in working 
order and the consular corps inspired with the new^ spirit of things. 

I should conclude, on the whole, that a closer union and a more 
active cooperation between the diplomatic and consular corps would 
increase the usefulness of both services and add sensibly to the dig- 
nity and importance of the consul. 

Walter C. Hamm. 

Hull, August 2b ^ 190 Jf. 



PROMOTION OF TRADE INTERESTS. 101 



I liave to acknowledge the receipt of an instruction from the 
Department of State in regard to a plan for the coordination and 
improvement of existing facilities for the collection of commercial 
intelligence and the promotion of American trade interests abroad. 
The Department desiring an expression from the consular officers of 
their views thereupon, I beg to express the belief that the scheme is 
one fraught with promise in effectively opening the way to organ- 
ized and systematic action that would lead to ^ a great advance in 
American trade interests abroad. 

Lewis Dexter, Consul. 

Leeds, Auqvst SU WO^. 



LIVERPOOL. 

I have the honor to make report in response to circular instruction 
of the Department dated August 4, 1904, inclosing a circular to the 
American diplomatic officers in regard to the promotion of trade 
interests. 

Kesponding to the desire of the Department for an expression of 
my views upon this subject, I beg to say: 

It has long been ni}^ opinion that the foreign trade interests of the 
United States v^-oulcl be subserved by the appointment of commercial 
agents, and particularly by the appointment of a commercial attache 
of the American embassy?" at each of the principal commercial coun- 
tries of the world. Speaking with the candor which I am sure the 
Department desires, I w^ould sav that I doubt whether any satisfac- 
torv arrangement can be made hy Avhicli the ambassador or minister 
himself should undertake commercial duties, excepting in so far as 
commercial matters may relate to diplomacy. In this country, and I 
believe in all the Old- World countries, there would, I think, be a preju- 
dice against a diplomatic officer so acting; but I think the (Jiffic^^^ty 
could be obviated by having a commercial attache connected with the 
embassy. I remember, some time ago, at a public function of an his- 
toric trade guild in London, meeting a connnercial attache of the Ger- 
man embassy. He told me that the German embassy was the only 
one which had a commercial attache connected with it. He was a 
scientific man, and he told me that at that particular time he was 
making inquiries as to the production of certain metal manufactures, 
particularly those of steel and iron. 

Without a doubt, consuls are often unable to procure valuable in- 
formation for the reason that they have not aiiy diplomatic status. 
A commercial attache, connected with the embassy, could study the 
general conditions of the trade of the country to which he was accred- 
ited, and could make valuable suggestions (through the State Depart- 
ment, if necessar}^) to consuls at particular posts, and could indicate 
valuable lines of inquiries. For instance, Liverpool is, I believe, the 
port of entrance for tAvo-thirds of the agricultural and farming and 
dairy exports of the United States to Great Britain; but London is 
the great seat of commerce of this countiy, and a commercial attache 
would be far better able to watch the developments of this trade than 
the consul at Liverpool is able to do. 

One great trouble with our consular service with regard to making 
reports upon trade matters is that the routine work of consuls is in- 



102 PROMOTION OF TRADE INTERESTS. 

creasing all the time, and a consul really has very little time to so mix 
in the outside business world around him as to properly inform him- 
self upon commercial matters. American citizens visiting this coun- 
try expect the consul to be in his office all day, and grumble if they 
do not see hhn, A commercial attache would be free from the con- 
fining requirements which pertain to a consul, and for that reason 
would be much better fitted to make the necessary inquiries upon 
which reports are based. 



Liverpool, August 30, 190. 



James Boyle, Consul. 



MANCHESTER. 



In reply to the Department's circular, '' Promotion of trade inter- 
ests," I would beg to say that during the twelve years of my consular 
service I have very rareh^ found any necessity of appealing to 
embassies for assistance in piocuring information. In the few cases 
where such help was needed, it was given promptly. 

The appointment of commercial attaches by foreign powers has 
been, so far as I have seen, more to make up for the lack of proper 
reports from a consular service, which has not been composed of men 
who Avere fitted to understand the commercial conditions at home or 
abroad, as has been the case with most European nations. 

I would suggest that circulars, which affect broadly the whole 
country, and concerning wdiich data may be in possession of central 
government boards or departments, like ours in Washington, could 
be sent to embassies, as at present constituted, as well as to consuls. 
The result would be the fullest possible discussion of the subject, 
and, incidentally, the practice could be made use of to train the 
younger secretaries in work which would not onl}^ better fit them for 
diplomatic services abroad, but also for their several places as Ameri- 
can citizens at home. 

The tendency to any centralization of control, apart from that of 
the State Department, Avould. in m}^ opinion, be detrimental to the 
best work of either diplomatic or consular service. 

Under these circumstances, a commercial attache would seem to me 
to be an extra piece of Government machinery, which would be of 
little real service. 

Wm. Haerison Bradley. 

Manchester, Se'ptemher 9, 190J/,. 



TsE^ CASTLE ON TYNE. 

I have the honor to acknowledge receipt of circular in regard to 
the promotion of American trade interests, and in reply would say 
that, in my opinion, it would greatly facilitate the trade inquiries 
which the Department has in view if such inquiries passed through 
some head who could obtain general information from such sources 
as those indicated in the circular and could collect from the con- 
sular officers such information as is available in their districfts. 

It is manifest that it is absolutely impossible for consular officers to 
obtain the information which is asked for in many of the inquiries, 
as there are no official data in their districts to go upon, but all that 



PROMOTION OF TRAUP: INTERESTS. 103 

is desired of a general cliaj-acter could be obtained without any 
difficulty from a central authority, and the consular officers would, 
of course, always be anxious to supply any supplementary informa- 
tion that might be accessible in their particular neighborhoods. 

As a rule we have always found the local authorities very courteous 
and obliging in supplying information of a statistical nature, and 
regarding inquiries of a more private kind, I have no doubt that, if the 
request w^as backed by a central authorit3^ the required information 
would be more readily obtained. 

H. Nixon, Consul. 

Newcastle on Tyne. September ^6\ 1904- 



NOTTINGHAM. 

I have the honor to acknowledge the receipt of circular, " Promo- 
tion of trade interests," wherein consular officers are directed to 
express their views on the subject treated of. 

In my personal consular experience, there has never been an occa- 
sion Avhen the aid of a diplomatic officer wou.lcl have secured commer- 
cial or industrial information Avhich I could not otherwise obtain. I 
can readily perceive, however, that such would probably not be the 
experience of a consul or consul-general in a capital city w^hen 
required to obtain unpublished, statistics or other information from 
the general govertiment. 

In this country practically everything in the way of general com- 
inercial and industrial information is printed in the " blue book " of 
the Parliamentary Paper, which may be had of the publishers by 
anybody for a few pence or shillings. Therefore, according to my 
experience, a consul at an interior post like Nottingham, has no occa- 
sion to apply for commercial or industrial information to any public 
officials, except county and- city, and these are uniforml}^ courteous 
and readily give all the information desired. 

The transmission through diplomatic officers of instructions to 
consular officers in particular cases, and the return through the same 
channel of the consular reports, pursuant to such instructions, with 
suggestions and annotations by the diplomatic officers, would, in my 
judgment, often be helpful to a consul, as well as to his reports. It 
is possible that some consuls might be disposed to resent this .propo- 
sition; but the only serious objection, it seems to me, would be the 
unavoidable delay caused by tliis mode of transmission in the receipt 
by the Department of State of reports wherein time was an important 
eiement. 

In the promotion of American trade interests otherwise than by 
assisting in the collection of information for rej^orts, diplomatic offi- 
cers could aid consuls very materially by suggestions which might not 
have occurred to the latter. 

Broadly considered, the plan outlined in the circular to American 
diplomatic officers w^ould, in the opinion of this consulate, produce 
good results more than counterbalancing all apparent objections to it. 

Frank W. Mahin, Oonsf(L 
Nottingham, Seftemhev 2, 190 J^. 



104 PROMOTION OF TRADE INTERESTS 



PLYMOUTH. 



The system by Avliich consular officers collect information as to busi- 
ness conditions in the countries to which they are accredited is, under 
present conditions, far from efficient. This fact is srenerallv recognized 
b}^ consuls who have taken the proper interest in promoting Ameri- 
can commercial interests in the United Kingdom. England is, by 
far, the greatest purchaser of American goods and produce, and the 
business interests existing between the two countries are so elaborate, 
complex, and constantly widening that the methods now employed in 
the collection of industrial data are not sufficiently thorough and sys- 
tematic. The developments of the world's trade demand the reorgan- 
ization of our service. Under a new form of rou^tine, it could work 
with renewed energy and better results. The utility of its reports 
would be greatly increased by a closer and more active cooperation of 
the diplomatic and consular service, as suggested in the Department 
circular. 

To this end, I would respectfully suggest that each of the im- 
portant embassies there be accredited a commercial attache whose 
sole duty it should be to watch and further the commercial interests 
of America. Through him all consular officers should make their 
reports, which should be confined to their respective districts. Those 
matters which apply to the country at large should be covered by the 
reports of the attache himself. This would prevent duplicate matter 
being prepared at unnecessary expense and labor. It would also 
greatly reduce the editorial work of the Department at home. The 
present lack of diplomatic status would in this manner be supplied. 
Such an innovation would be of great service to America. 

Jos. G. Steppiexs, Consul. 

Plymouth, October ./, 1901i. 



SHEFFIELD. 



In compliance with circular of August 4 I have the honor to sub- 
mit herewith my views. 

I am of the opinion that if the suggestions embodied in the circular 
to diplomatic officers ivere put in force in their entirety it would 
result in putting the diplomatic service of- the country upon a com- 
mercial basis that would inevitably lower its standing and decrease 
its efficiency without corresponding benefit to business interests. 

There are some lines, however, along which the diplomatic corps 
could cooperate with the consular force with benefit to trade interests 
without injuring its standing in the least. This is notably the case 
in all inquiries sent out relating to legislation or change in the laws 
of the country inquired about. The diplomatic corps, by reason of 
its location at the capital or near the seat of government, would be 
able to furnish more complete and exhaustive information on these 
subjects than the best trained and experienced consul could hope to 
obtain. 

If the suggestions in the circular were put into force, it would be 
manifestly impossible to expect the ambassadors to give their per- 
sonal attention to this matter. The work of investigation would 
necessarily have to be delegated to subordinates. By so doing a great 
portion of personal prestige would be lost; information that would 



PROMOTION OF TRADE INTERESTS. 105 

be freely and fully given to the principal would often be scant and 
curt if asked for by anyone else. This being the case, the result 
desired could best be obtained by the appointment of a commercial 
attache to all of the leading embassies. An appointee of this charac- 
ter carefully selected for his business experience and judgment, prop- 
erly accredited to and accepted by the government of the country to 
which he is appointed, backed up by the prestige of the diplomatic 
corps, of which he would be a member, could make himself of great 
help to the consular force and would in time become a powerful 
agency for the extension of home trade. 

The suggestion that consular reports be transmitted through the 
diplomatic corps, there to be reviewed and annotated and then for- 
warded to the Department for final decision as to what should be 
printed, would be a good plan. It is easily conceivable that a consul 
might write so fully and freely about local conditions that actually 
existed within his immediate sphere of observation as to give offense 
or perhaps cause embarrassment in the diplomatic relations that 
existed betvfeen the two governments, but if his reports were revised 
and annotated and the unwisdom of their publication either wholly 
or in part pointed out, this danger would be avoided. 

Chas. N. Daniels, Consul. 
Sheffield, Seftemher i, 190.^. 



SOUTHAMPTON. 



In the circulars remitted to this cQusulate by the last mail I find 
one relating to the '' Promotion of trade interests/' and I respectfully 
submit the following views on the subject : 

1. From the consular point of view, I can see no reason why the 
cooperation suggested between the diplomatic officers and the consular 
service in the interest of trade extension should not prove distinctly 
advantageous and satisfactory. My personal observation of the prac- 
tical w^orking of this plan in connection with the service of another 
country, as carried out in South America, leads me to believe that the 
same could be adopted by the American service with positive and per- 
manent results. 

2. The free initiative on the part of the consular service should be 
fully maintained. That has been \h^ distinguishing feature of the 
service, and has led to the splendid results which have marked it, and 
has v/on praise from the whole commercial world and from its most 
proitiinent commercial bodies. In the operation of this plan, I make 
free to suggest, there should be constant and cordial touch between 
legations and cousulates, such as is not maintained in all cases at the 
present time. ¥/ith regard to the plan of France, which is above 
referred to, there is a perfect entente cordiale between the two 
branches of the service; and they are further aided by commercial 
attaches, holding semiconsular rank, whose duties may be said to be 
more of a technical character, but still generally used. The extra 
cost of obtaining comprehensive information relating to a subject, or 
group of subjects, thus involved is a,ll provided for governmentally, 
and the favoring results for France in those countries abundantly 
testify to the wisdom of the plan. It may be said that our OAvn x\gri- 



106 PROMOTION OF TRADE INTERESTS. 

cultural Department successfully follows out this method in a way 
in maintaining in the field competent investigators, whose reports 
have been of a value far bej^ond common expectation. 

3. In my own experience at Montevideo, where for nearl v six years 
1 worked diligently for an uplift of trade with the United States — 
and worked alone, not being able to secure diplomatic aid — I learned 
the helpful value of a willing legation. I learned how much an 
amiable legation counts for in trade when I saAV commercial advan- 
tages slipping out of our own hands through the lack of such coop- 
eration — slipping into hands, too, of other nations where practical 
methods prevail through cooperative efforts. In cases where partial 
success was brought about, it w^as througli other and personal means 
and influence. 

4. In ni}^ opinion, the commercial work in every field of the foreign 
service of the United States begins at the door of the embassy and 
legation and ends onl}' with the outgoing cargo. The consul, as the 
direct commercial representative, should be the initiator. The influ- 
ence and prestige of the diplomatic representative should be freely 
and generously extended. There is no need of friction. There is 
nothing more sureh^ required than the widest and frankest coopera- 
tion to the end of extending American trade to the utmost throughout 
every portion of the globe, and promoting the interests and the 
growth of our comitry in every foreign field. 

Albert W. Savalm, Consul, 

SOUTHAMPTOX, AugiLst 25^ 190 If- 



GREECE AIS^D THE BAEKAJS^ COUXTRIES. 

Refovt from the Legation. 

American Legation. 

Athens, August 27, 190^. 

I have the honor to acknowledge the due receipt of the Depart- 
ment's circular of the 29th ultimo, relating to the '^ Promotion of 
trade interests." Iii Aiew. however, of the complicated character of 
my mission, it is practically impossible for me to gi^^e categorical 
answers to the questions contained therein. 

In Greece, we have two American consuls, one of whom resides in 
the capital, and two non- American agents, one liAung at the Piraeus, 
only a few miles distant from Athens. Generally speaking, these 
officials ai'e not permitted to communicate directh'' with any Greek 
ministry. 

In Eoumania and Servia, we have one official each, gentlemen of 
non- American nationality, residing and carrying on business in the 
respectiA^e capitals. In accordance with the terms of the consular 
couA'entions of 1881, these officials are expressly authorized to commu- 
nicate with the GoA'ernments concerned in some instances, and in 
practice they are usu.ally permitted to correspond with the ministers 
of foreign affairs whenever they find it expedient to do so. 

In Bulgaria, Ave liaA^e no consular representatiA^e of any kind. 



PROMOTION OF TRADE INTERESTS. 107 

Our coiiimercial relations with Greece and Servia, respectively, are 
based npon most-favored-nation treaties of 1837 and 1881. Those 
with Bulgaria we base upon the so-called " capitulations " of 1830 
and 1862 "although the local government does not fully recognize our 
claims and is at present desirous to negotiate a commercial conven- 
tion. With Eoumania we have no other basis for our commercial re- 
lations than the general princi]:)les of international laAv. 

In Greece, in addition to their representation at the capital and the 
consular officials stationed at Patras and Corfu, where w^e also are 
represented, all or most of the following countries have consular 
re]3resentatives at Syra, Volo, Zante, Cephalonia, and Kalamata: 
Austria, Belgium, Denmark, France, Great Britain, Holland, Ger- 
many. Italy, Portugal, Russia, Spain, and Turkey, Avhile several of 
them have representatives at other places as well. 

In Roumania, 13 consular offices exist at Galatz, 12 at Constantza, 
11 at Braila. 7 at Sulina, 5 at Craiova, and others at Jassy, Giurgiu, 
Tulcea. etc. In Servia there are but few (Austrian and Turkish) 
consular officers outside of Belgrade. In Bulgaria, Austria, Bel- 
gium, France, Germam^, Great Britain, Greece, Italy, Russia, and 
Turkey have consular representatives at Philippopolis, Rustchuck, 
Varna, and Burgas, or at nearly all of these places, w^hile Holland 
and Spain are also represented at Varna. 

So far as I am aware, none of the countries to w^hich I am accred- 
ited have regular commercial attaches abroad, and there are no for- 
eign commercial attaches resident in their capitals. On rare occa- 
sions the British commercial attache at Vienna has visited Greece, 
and his colleague at Constantinople was in Roumania last summer. 
There is a delegate of the Hungarian ministry of agriculture per- 
manently stationed in Roumania, but he is not attached to the 
Austro-Hungarian legation at Bucharest. 

Under the circumstances, and in view of the fact that American 
commercial men rarely A^isit this part of Europe, it will readily be 
seen that American trade is considerably handicapped in these coun- 
tries. Personally, I am of the opinion that '* the Balkans *' offer a 
good field for American trade, but that field must be worked with 
knowledge and consideration of local conditions, and I am strongh 
in favor of the appointment of Americans, either as consular officers 
or commercial attaches, to reside in Roumania, Servia, and Bulgaria. 
It is useless to expect the inhabitants of those countries to order 
American goods on their own initiative, when foreign goods are to 
be had on shorter notice and easier terms, and it is equally useless to 
expect a United States consular official of non-American nationality — 
who usually is the agent for non-American commercial houses as 
well — to show any great amount of zeal in the development of a 
market for American goods. The more or less frequent distribution 
of advertising matter, generally printed in English, does not do much 
good, and but little can be hoped for until Americans begin to take 
up the question seriously and to study the local commercial conditions. 

I see no reason why it should not be practicable for me to transmit 
to the consular officers in the countries to which I am accredited such 
instructions as the Department ma}^ see fit to send from time to 
time, and I Avould, of course, be glad to give these officers any assist- 
ance in my power to enable them to carry them out in a satisfactory 



108 PROMOTION OF TRADE INTEEESTS. 

manner, I am also ready to revise and annotate tlieir reports to 
the best of my ability, although, as will readily be understood, my 
sources of information must frequently be more restricted than 
theirs. Generally, in the services of the countries with which I ha^^'e 
any acquaintance, consular officials are more directly subordinate to 
the diplomatic mission in the country in wdiicli they serve than is 
the case with us. In foreign di]3lomatic and consular services, how- 
ever, the conditions of rank, tenure of office, etc., are so different from 
ours that it is difficult to make comparisons. 

Undoubtedly, our diplomatic and consular services may, at times, 
be " powerful auxiliaries in the great and constantly growing work 
of equipping our manufacturers and exporters for effective compe- 
tition in the world's commerce,'' but it has been my experience that, 
in Europe, at least, but little valuable information to this end can be 
obtained through official sources. Trade competition generally is 
becoming keener and keener and really useful information can 
rarely be obtained except by interested experts acquainted with local 
conditions, as well as the qualities, etc., of the goods which they wish 
to place. That our diplomatic and consular officials should cooperate 
in the promotion of American trade interests, however, seems to me 
to be not onl}^ possible and practicable, but wholty natural. 

Under existing conditions, many American articles are imported 
into this part of Europe through middlemen (Hamburg, Trieste, 
Liverpool) without the buyer either knowing or caring anything 
about their origin, or their appearing as American goods in the local 
statistics. 

John B. Jackson. 

P. S. In reply to question 3 'in the circular referred to above, I 
have to say that I do not think that any additional assistance would 
be needed to enable me to carry into effect the programme described 
under question 1, unless the Department should consider necessary 
the occasional emplojmient of a lawyer or other expert. 



Opinions of Consular Ofjicers. 

ATHENS. 

In response to the Department's instructions of the 4:th ultimo, 
which inclosed a copy of a circular to the American diplomatic officers 
in regard to a plan for the '' coordination and improvement of exist- 
ing facilities for the collection of commercial intelligence and the pro- 
motion of American trade interests abroad," and requested an expres- 
sion of my views upon the subject, I give my views as brieliy as 
possible. I have read and reread the plan, and have given it much 
thought. As I believe that it would humiliate the consuls, cause 
serious friction between the diplomatic and consular services, , and 
have quite the opposite effect to that desired, I have nothing to say 
in its favor. 

Daniel E. McGinley, Consul. 

Athens, September 10^ 190 If. 



PROMOTION OF TRADE INTERESTS. 109 



PATRAS. 



Replying to your circular dispatch of 4tli of August, entitled " Pro- 
motion of trade relations," and a request for comment thereon, I have 
file honor to state that in my judgment were a consul invested with 
the right and privilege of asking from a diplomatic officer, located in 
a country or district where both were officiating, a reasonalDle amount 
of information of a specific nature, bearing upon commercial or trade 
relations, for transmission to the home government, he would unques- 
tionably be in a position to secure through the agency of such diplo- 
matic officer much desirable and even valuable information Avhich it 
might otherwise be extremely difficult for a consular officer to obtain 
by his own unaided efforts. 

The proposition, as contained in your circular already referred to, 
is a commendable one, and has been so explicitly set forth that it 
practically leaves ho further views that I might originate upon the 
subject. 

James Yerner Long, Consul. 

Patras, August 27, 1901^. 



ITALY. 

Report from the E ml? assy. 

American Embassy, 

Rome, September 9, 190 If. 
In reply to the Department's printed instruction of July 29, 1904, 
in regard to cooperation between the consular and diplomatic services 
for the better collection of commercial intelligence, I beg leave to 
rejjort as f ollow^s : 

I. 

An ambassador might easily deliver to consuls requests for reports, 
with recommendations, and might correct reports, according to his 
ideas and information, as they passed through his hands on their 
way to the Department. But human nature being what it is, consuls 
would sometimes ignore, as far as they could, the embassy's sugges- 
tions; and if the}^ knew what the criticism or emendations of the 
embassy were concerning their reports the}^ would often feel irri- 
tated thereby. Moreover, except occasionally, the suggestions and 
criticisms of an ambassador would not be worth much, as his many 
social and purely diplomatic duties would prevent him from, giving 
profound attention to commercial questions. An ambassador may 
with propriety consult onl}^ ministers and high officials, and to ap- 
proach these without giving offense at the foreign office is sometimes 
delicate business. 

A secretary who occupied himself entirely with industrial, agri- 
cultural, or commercial investigations could indeed supply the am- 
bassador with valuable suggestions and criticisms ; but in that case 
the secretary might as well be an attache representing the proper de- 
pa I'tment at Washington, just as military or naval attaches represent 
the War Department or the Department of tlie Navy. Therefore, if 
the embassies are to extend their duties so as to include a more minute 



110 PROMOTION OF TRADE INTERESTS. 

attention to the collection of commercial intelligence than at present, 
I think that each ambassador or minister should have a commercial 
attache, duly credited, and with a recognized diplomatic rank, which 
would not give him precedence, probably, over the military or naval 
attaches. 

There might be much said in favor of making the consular service 
entirely subordinate to the diplomatic representatives, upon whom 
would rest then all initiative cluties, as well as the responsibility of 
general control and direction ; but to leave each service independent 
as at present, and to try to make them work together in respect to 
certain reports, would, be, in my mind, to contrive a machine which 
would cause friction, and tend, by dividing the meed of praise as well 
as the feeling of responsibility, to destroy the spirit of initiative. 
The action of the Department of State in amending or supi)ressing a 
report in whole or in part would, of course, be accepted with silence 
and respect; but every decision of that kind might cause secret irri- 
tation, not against the Department, but in one service against the 
other. 

The establishment of regular commercial attaches would, in my 
judgment, secure for the Government the service which is described 
in the circular as desirable. Such a man should have a technical 
knowledge of agriculture, commerce, and industrj^, and should know 
the language of the nation to which he is sent. He might wisely be 
chosen from the consular service, or,, before arriving at his post, might 
be required to spend some time in the principal American consular 
office of the country. His pay should be adequate, he should liaA^e a 
competent clerk, and money should be allowed to pay his traveling 
expenses w^hen conducting investigations away from the seat of the 
embassy. An attache accredited to two countries could not wisely be 
allowed to spend the most of his time in the one he preferred, to the 
detriment of work in the other. 

If commercial attaches existed, the consular corps might be almost 
exclusively occupied in attending to the consular cluties, as they are 
generally understood. The consul-general should not be at the capi- 
tal, but at the principal port or business center. In Italy this would 
be a Genoa. Eome is not a manufacturing town, or a port of entry, 
or even a railway terminus. To the other cities of Italy it holds 
much the same position as Washington does to other American cities. 

II. 

The consular and diplomatic services of Italy are much more 
closely united than the American consular and diplomatic services. 
The nominal importance of consuls is much less, and the position of 
the consul-general, as we understand it, hardl}^ exists in fact. Com- 
mercial attaches have been appointed in a number of cities, but in 
reply to inquiries I am told that it is yet too soon to say what the 
results are. Consular reports concerning American affairs which 
are most esteemed in Italy come from the office of the Italian consul 
in >Tew^ York. The diplomatic status of the Italian commercial 
attache is not clearly defined, but he is, as a matter of f ?.ct, closely allied 
to the ambassador.*^ In Eome the commercial attache of the British 
embassy, who is also attached in Vienna, is received at court on the 
rare occasions of his presence in Italy. It is the experience of the 



PROMOTION OF TRADE INTERESTS. Ill 

British embassy in Rome that a commercial attache should be obliged 
by the regulations of the ser^dce to be actuall}^ in each country to 
which he is accredited a fixed period of time each year. If we had 
a commercial attache at this embassy, and if it were desired to have 
him work in Italy and another country, the other countr}^, in my 
opinion, should be Switzerland and not Austria. Two countries 
would fully occupy an industrious man. 

If cooperation such as outlined in the Department's circular 
existed between the American consular and diplomatic services in 
Italy, the embassy at Rome would require another secretary and an 
additional clerk for him. The embassy's offices would have to be 
enlarged and the contingent fund increased to pa}^ for additional 
domestic service, cleaning, heating, lights, etc. An effort should also 
be made to ha^^e all the employees about the embassy American citi- 
zens. No foreigner should be employed about the place even in the 
smallest capacity. 

Lewis Morris Iddings, Charge. 



Opinions of Consul- General. 

ROME. 

In answer to Department's circular, " Promotion of trade in- 
terests," I have to say that I have given of late years much attention 
to this subject, and in a report made by me in 1898, after an inspec- 
tion tour of consulates, I suggested to the Department : 

In view of the recent circular of the Department, dated August 5 last, re- 
quiring from the consular offices a very minute report on the commerce, indus- 
tries, and other economical, governmental, and municipal matters, and consider- 
ing the importance and usefulness of such a carefully prepared report, I have 
taken this suhject up with V-arious consuls under raj jurisdiction while on my 
inspection duties, and with them have come to the conclusion that the public 
interests would be better served and the aim of the Department attained if in- 
stead of each and every consul preparing and sending to the Department an 
indepentlent report, all containing very much the same matter, each consul 
made a report upon the special commercial, industrial, and other interesting 
features of his respective district and sent it to the consul-general. The con- 
sulate-general would compile these various reports, giving to each district 
proper credit for the information furnished by it, and add, furthermore, to 
same all the statistical and other data it is in better condition than the consuls 
to gather at the capital, where all the public departments are centralized. 

It is easy to conceive that all the consulates cooperating in and contributing 
to one and the same work the result could not fail to be most satisfactory. 
Such a report would necessarily be very complete and cover a great deal of use- 
ful information upon every branch of commerce, industrj^ finance, and gov- 
ernment and city administrations. It would also have the advantage of an- 
swering many inquiries frojn American correspondents, inquiries which often- 
times can not be answered for the lack of means of procuring the desired in- 
formation, and when answered, seldom in as satisfactory a manner as one 
would wish. 

It still is my opinion that commercial and trade reports to be com- 
prehensive, thorough, and useful should be prepared by the consul- 
general at th'e central seat of the government to which he is accred- 
ited. Said report should be based upon information furnished by 
each individual consulate at request or upon its own initiative 
and especially upon reliable statistics and other information obtained 
by the consulate-general from the various government departments. 



112 PROMOTION OF TRADE IT^TERESTS. 

Such information is ahvays more readity obtained by this office and 
with less red tape and conventionalities" than by the channel of the 
embassy, which, by the diplomatic rules, may only communicate with 
or through the foreign office (a very slow process), while the consul- 
general may correspond with or interview any government official di- 
rectly and without intermediary. This is so true that the embassy 
always use the consulate for any speedy information they may re- 
quire, while the consulate has no need to call for assistance upon the 
good offices of the embassy except in special diplomatic cases. 
^ Italy has no commercial agents attached to her embassies or lega- 
tions in Europe. England has latel}^ appointed such an agent to the 
embassy in Kome. England, however, has no consul-general at the 
capital. 

The appointment of a commercial attache would certainlv lighten 
the burden of the consular officers and relieve them of sonie extra 
work, though a profitable one, when it is considered that v/hile the 
consular officers gather and supply commercial information to the 
commercial world they at the same time educate themselves and ac- 
quire such experience as wdll better fit them to continue in the career 
or to render personal and useful services for the benefit of American 
commercial interests. 

I think that the object contemplated by the appointment of a com- 
mercial attache could be carried out in the following manner : 

1. That all commercial reports and trade information be prepared 
hj the consul-general. 

2. That consuls, by request or upon their own suggestion, forward 
to him individual reports upon the special industries and trade rela- 
tions interesting their districts. 

3. That the Department allow to the consulate-general an appro- 
priation not to exceed $800 per annum for the purpose of securing 
adequate clerical help and statistical information for the preparation 
and compilation of said reports. 

-1. That once in a while the consul-general at the most convenient 
time visit personalh^ the consulates within his jurisdiction for the 
purpose of consulting with his colleague and the local chambers of 
commerce upon all matters of interest to our commerce and industries, 
all of which would be incorporated in a special report. One month 
should suffice for such a mission, at an expense not to exceed $400. 

5. If advisable, the consuls-general might, in addition to their 
title, be given that of " commercial adviser " attached to the embassj^, 
and this simply in view of securing for them more consideration. 

This suggestion if carried out would, I believe, fill all the wants 
and fully answer all purposes. 

With the system now in use, the consular reports must obviously 
be incomplete. 'None of the offices is sufficientl}^ equipped in clerical 
force and otherwise to adequately cope with this work. On the 
other hand, the consuls in the provinces have not at their disposal 
the general statistics nor the central government's source of informa- 
tion upon which the consul-general can constantly draw. Such 
consuls must and do apply to the consulate-general for information 
thev can not secure in their own districts, with the result that 
their reports often conflict and contain useless repetitions. It is 
also to be considered that the Italian laws governing trade and 
€onnnerce and its agencies are national; that all amendments. 



PROMOTION OF TRADE INTERESTS. 113 

changes, and interpretations must emanate from the central gov- 
ernment. It is therefore obvious that the consul-general at the 
capital is placed in a better position than his colleagues in the 
provinces to secure reliable information. 

What I say of the consul-general would be true of the commercial 
attache, if one be appointed, and therefore either measure would, I 
believe, be a step in the right direction. 

It is, however, proper to observe that the problem of promoting 
trade between America and Italy can not, in my opinion, be solved 
by the appointment of a commercial attache or otherwise as long 
as our American manufacturers will not themselves show a desire 
of cooperating with official efforts and entering the field in compe- 
tition with other countries. My experience of seven years in Italy 
has confirmed m.e in the belief that American manufacturers are, as 
a rule, not at all anxious to invade this market. This is easy to 
understand, too, when one considers the continuous conimercial and 
industrial prosperity in America and the vast home consumption 
which absorbs almost the total production. Outside of natural 
products, of some specialties, and of certain articles which fear 
no competition,- there is comparatively very little exported from 
America into Ital)^ This is wholly due to the fact that the Ameri- 
can manufacturers, finding a ready home market for their products, 
will not change their methods for the sake of doing business abroad 
unless obliged to. They are not willing to meet the same condi- 
tions as granted by European producers. So far I know of only 
one enterprising shoe concern, of Ljam, Mass., which has an active 
agent in Europe who, two or three years ago, undertook a business 
tour of this countr}^ The first year his success was indifferent, yet 
he managed to place a few orders; he was sufficiently encouraged 
to persevere, and last year, when he visited my office, he told me 
that the concerns he had dealt with had since more than trebled 
their orders and that he had secured nevf customers, realizing thereby 
a great deal more than he had hoped for in such a short time. That 
shoe concern adopted the same methods and agreed to the same 
conditions accorded by German, Austrian, and other European manu- 
facturers. It made a personal effort to introduce its goods, got 
acquainted with the prospective clients, studied their financial stand- 
ing, ascertained the amount of credit they might be allowed; in a 
word, it met the commercial conditions of the market and was thus 
enabled to successfully compete with European manufacturers. 

I suppose that that particular shoe concern was pushed to seek new 
markets on account of the unsatisfactory condition of the shoe busi- 
ness in America, due to great competition and overproduction. Their 
agent in Europe was an intelligent and competent man; he went to- 
work in the right direction, and was rewarded by success. One thing 
is certain and let it be borne in mind: "American goods, on the same 
terms, will always command the preference," for they have a reputa- 
tion for workmanship, quality, and durability. 

I am, therefore, afraid that, as long as prosperity prevails in the 
United States, there is little cooperation to expect from our manu- 
facturers and producers. Hard times, such as we had before 1897, 
may change the situation. I have been preaching for the last seven 
years, and I have tried to convert the American manufacturers and 

H. Doc. 245, 58-3 8 



114 PROMOTION OF TRADE INTERESTS. 

capitalists I have come into contact with to my A'ieATs, inviting them 
to study the Italian market, while they did not need it, in order to be 
read}^ for business at a time when conditions and overproduction in 
America woald make the seeking of foreign markets imperative. 

My colleagues, as veell as myself, constantly respond to inquiries 
from American correspondents in regard to business prospects in 
Italy. We promptly give all possible useful information and encour- 
agement ; but I, for one, am yet to find the concern that has taken the 
trouble of going deeper into the question than their first inquirj^ 
Therein lies, in ni}^ opinion, the difficulty of the situation. The 
markets are open to our products if our producers will only take the 
trouble of entering them in the proper way. 

While I, was writing the above, I met an American gentleman, 
agent of a very large coal company in Pennsylvania, and I under- 
stood from him that he had just succeeded in making some satisfac- 
tory contracts for supplying cargoes of American coal. He had, of 
course, first of all Al coal; secondly, he made a personal effort to 
convince the buyers of the superiorit}^ of his goods, and thirdly, he 
secured orders at a higher price than British coal is sold in the 
market. This is another proof that the market is here, if only our 
manufacturers and exporters will make a serious effort to secure a 
share of it. 

Another important point connected with the development of Amer- 
ican exports into Italy is the necessity of establishing direct banking, 
relations between the two countries, which would greatly facilitate 
commercial intercourse. The establishment in Italy of an American 
banking institution should receive the attention of our financiers. 

Hector de Castro, C onsid- General. 

EoME, October IS, 190Jf. 



Opinions of other Consular Officers. 

CASTELLAMARE DI STABIA. 

I have the honor to acknowledge the receipt of the Department's 
instruction regarding " Promotion of trade interests " of August 4, 
1904, with the circular to diplomatic officers inclosed. 

It is evident that the advantages of cooperation of the consular and 
diplomatic services must depend upon the case in point, and a gen- 
eral rule would be difficult to lay down. I believe, however, that the 
two corps could work together advantageously if something like the 
following suggestions were adopted : 

If a consular officer receives an instruction from the Department, 
some portion of which calls for information which he believes could 
be better obtained by the diplomatic representative than by himself, 
he should then write a report containing such information as he had 
been able to gather and forward it to the embassy or legation, with 
a request that the questions which he, the consular officer, was unable 
to answer be replied to, and the completed dispatch forwarded to the 
Department. 

Another method of obtaining the same result is the following : Let 
all consular officers be instructed that when information is required 



PROMOTION OF TRADE INTERESTS. 115 

by the Department which, in the consul's opinion, could be obtained 
with more dispatch and accuracy by the diplomatic representative 
than by himself he, the consul, sho\dd then write directly to the diplo- 
matic representative, requesting that the information be sent to him. 
The consul could then embody the information thus obtained in his 
report, noting what portion was supplied by himself and what by the 
embassy or legation. 

An instruction from the Department permitting consular officers 
to correspond with diplomatic officers whenever, in the opinion of 
the former, the exigencies of the service required it Avould at once put 
the two corps into cooperation. The correspondence could, of course, 
be carried on through the consulate-general, but this might cause 
some delay. 

C. S. Crowninshield, Commercial Agent. 

Castellamare di ^'t a\^i a^ Se2)teni.heT 1. 190 Jf. 



CATANIA. 



After careful consideration of the circulars dated July 29 and Au- 
gust 4 last, I beg to offer as my opinion that the conferring of diplo- 
matic status on consuls would not be an additional advantage in 
regard to securing commercial information. As far as concerns this 
consulate and the Italian officials of the consular district, the consul 
has always had every courtesy shown him in official dealings with 
officers of all departments, governmental, provincial, and city. All 
information asked for is given promptly and obligingly. The em- 
bassy at times requests information from the consul regarding prod- 
ucts and statistics of the district, which information is always 
promptly and cheerfully given. 

Alexander Heingartner, Consul. 

Catania, Octoher 15, WOJ^. 



GENOA. 



In reply to the request contained in Department circular. Promo- 
tion of Trade Interests, of August 4, for an expression of opinion on 
the circular to diplomatic officers inclosed therewith, I beg to say that 
the idea of establishing some central authority for the direction and 
subsequent oversight of the reports prepared from time to time by 
the consuls of the country on a given subject seems very desiraljle. 
At present consuls in different districts often collect Avith much effort 
identically the same material. Such overlapping and reduplication 
result in much useless consumption of time for those who jorepare tlie 
reports, and must necessarily result in further waste of time and dis- 
appointment for the bureau which intends to derive practical results 
from them. With an intelligent direction from some one who would 
acquaint himself with the general field of the country and the situa- 
tion of its various parts with regard to the inquirj^ proposed, each 
consul could work upon a portion of it assigned him and could thus 
be both more brief and more forcible and thorough than now. He 
would cooperate with his colleagues in a combined effort instead of 
replacing and often conflicting with them. 



116 PJROMOTION OF TRADE INTERESTS. 

A trained commercial attache assigned to the embassy would seem 
to be an excellent means of bringing about this end; or the powers 
of the consul-general might be increased in this way and a small 
appropriation made to aid in the work. 

William Henry Bishop, Connul. 
Genoa, Septemher 6, 1901^. 



LEGHORN. 



Acknovvledging receipt of circular of August 4, I have the honor, 
as requested, to submit my views on the subject, as follows : 

Generally speaking, statistical information relating especially to 
the volume of trade within a particular consular district (imports, 
'exports, shipping, etc.) is furnished by local officials, who it may be 
said, and speaking from my experience here, are Usually willing to 
assist the consular officer in this respect, so far as lies in their power. 
It is, however, undoubtedly true that the sources of accurate official 
information which a consular officer can without great difficulty dis- 
pose of are in most instances limited to his own district and in many 
cases simpW to the place where he is located. To overcome such diffi- 
culties in the preparation of reports on subjects of more general inter- 
est and importance the plan outlined in the circular above referred to 
appears to be one of great utility. 

The suggestion as to the appointment of commercial attaches, 
charged with the special duty of collecting industrial and trade 
information, is certainly a most practical one. It frequently occurs 
that, in the collection of commercial data for private parties in the 
United States, as well as for the Department, a visit to the locality 
or localities where fuller and more accurate knowledge might be 
obtained vv^ould be of gTeat advantage and render possible the com- 
pilation of more comprehensive reports on the subject. At present a 
consular officer is not authorized to incur an}^ expense in such cases, 
but a commercial attache, in touch with the centers of official infor- 
mation, and with authority which would enable him in special cases 
to personally make investigations or empower the consular officer to 
do so on the spot, would, cooperating with the consular officer, be in 
a position to render very valuable service. 

There are, doubtless, manj^ other considerations favorable to the 
project, including that of the saving of much valuable time, etc., 
which will be brought to the attention of the Department by con- 
sular officers, whose views have been requested on the subject. For 
myself, I should be very glad to see the work of collecting informa- 
tion facilitated, and I am, therefore, most heartily in favor of the 
proposed plan. 

Jas. a. Smith, Consul. 

Leghorn, August ^7, lOOJf, 



MESSINA. 



In reply to circular of August 4, " Promotion of trade interests," 
I have to report as follows : 

In an experience of eleven years at this consulate, I hr. ve never 
found occasion to apply to the diplomatic officer at Rome for his 



PROMOTION OF TRADE INTERESTS. Il7 

intervention in secnring commercial information. The circulars 
received have always asked for facts or statistics appertaining to 
this district, which, if at all attainable, could be gathered by me on 
the spot. Indeed, there are a great many facts that a consul can get, 
which the ambassador could not. 

Instead of the ambassador being of service to the consul in ques- 
tions of commerce, I look upon the situation as reversed, for in 
numerous cases the latter can be of great service to the former. Of 
course, to a consul-general residing at the capital, who is called upon 
to make reports upon subjects, data, and statistics which can only 
be obtained from the government offices there — such, for instance, 
as the department of public works, direction of forestry, etc. — the 
embassy can be of assistance by corresponding directly with the 
officials, thus avoiding the delays which the consul-general would be 
sure to encounter before he Avould receive a satisfactory reply. 

A commercial attache at each embassy, I respectfully suggest, 
would be useless and detrimental to the efficiency of the service. As 
the matter stands at present, the Department of Commerce and Labor 
or the Bureau of Trade Relations receives inquiries from all parts of 
the countrj^ for information, and those that are deemed worthy are 
reduced to a circular and transmitted to the consuls, who prepare 
their replies to the best of their ability and forward them directly to 
the Bureau. If they are too prolix they are " boiled down,*' but the 
essential information required remains. If, on the other hand, these 
reports should be transmitted through the commercial attache, the 
filtration through his office Avould prol)ably eliminate many vital fac- 
tors. An infallible consequence. I. feel sure, would speedily follow 
his appointment — -the diversion from the Washington bureau of a 
greater part of the correspondence, which would find its way to his 
office, with the result, I fear, that instead of him alone, a nujnber of 
clerks would be required, and each country vrould have at its capi- 
tal a heavily worked branch of the Washington bureau. 

CiTARi.Es M. GAroiiY, Consul. 

Messina, SeptemJjer JO, 1904. 



MII.AN. 



In reply to the circular '' Promotion of trade interests,'' I have the 
honor to report as follows : 

To consuls who take pride in their work the greatest incentive to 
voluntary commercial reports lies in the fact that in recent years 
their efforts to better trade have found such complimentary indorse- 
ment, both at home and abroad, and in their belief that in developing 
this field they were adding materiallv to the prestige of the consular 
corps. While they will undoubtedly give good service under any ar- 
rangement that the Departmeiit ])uts into effect, divided responsibil- 
ity and credit can not foster pride in the work. The Department 
proposes to adjudicate between the consular and the diplomatic offi- 
cers in case of difference of opinion, but, nevertheless, the consul's re- 
port is subject to the diplomatic official, and under the system pro- 
posed he Avill not know whether it is the diplomatic official or the 
Department that has made alterations. 



118 PROMOTION OF TRADE INTERESTS. 

The diplomatic service has channels of inform ation that the consuls 
covet and that should be utilized if possible. If there could be an 
attache to the embassy who would w^ork in harmony wdth the con- 
suls, who could be applied to at any time for information, who would 
visit the different consulates, and, working with them, organize for 
the best results, the effects could not but prove of value. Any service 
that is specialized is certain to give the best results. 

Correspondence with American business firms who are seeking 
trade openings is developing at such a rate that the consuls find less 
and less time to devote to reports outside of those specifically called 
for, and if possible the incentive to greater work should be increased 
rather than minimized. 

Under the present system, there is a large amount of general infor- 
mation that'each consul is seeking independent!}^ which could be fur- 
nished from headquarters ; this, of course, to be supplemented by the 
local statistics and observations. Heports could be sifted, indexed, 
filed, and so arranged at headquarters that this great mass of infor- 
mation gathered in the country in the course of years would be avail- 
able for instant use and in the most satisfactorj^ shape. Duplication 
of reports and unnecessary work would also be avoided. 

If three or four men who have shown special fitness for the promo- 
tion of trade interests and statistical work should be stationed at 
American embassies in Europe for a year, with the idea of carrying 
out some such plan as the one above proposed, I do not believe the 
experiment would prove unsatisfactory. 

A great deal has been accomplished, but far more is possible. With 
a growing army of American exporters anxiously seeking the best 
methods and expert advice, with unfortunate first attempts discour- 
aging eff'orts that might otherAvise lead to a trade aggregate of mil- 
lions, the further systematizing and energizing of this branch of con- 
sular work rises above any question of expense. 

Harlan W. Brush, Consul. 
Milan, September 19, 1901f. 



NAPLES. 



I have the honor to acknowledge the receipt of the Department's 
circular " Promotion of trade interests,'- and to report that I most 
heartily approve of the plan set forth for the coordination and im- 
provement of existing facilities for the collection of commercial intel- 
ligence and the promotion of American trade interests abroad. I am 
of the opinion that the work vrould be .greatly simplified by the 
establishing of commercial attaches at the embassies and legations, as 
they would be in a position to systematize the collection and prepara- 
tion of all reports, and would know practically the existing condi- 
tions in each consular district under their supervision. 

A. II. Byington, Consvl. 
Naples, Aiu/ust S(K 100 4. 



PKOMOTION OF TRADE INTERESTS. 119 

TUKIN. 

Answering Department circular in regard to the proposed plan for 
the cooperation of consuls with diplomatic officers for the purpose 
of gathering commercial intelligence and promotion of American 
trade interests abroad, I would say that, in my judgment, the plan is 
a practical one. At times here I find it difficult to reach " the center 
of official information," and in such cases hints from our diplomatic 
officers would be welcome, as w^ell as helpful, in the collection of the 
desired information. On the other hand, consuls, by diligent efforts, 
coiiid render efficient service to our diplomatic officials by collecting 
and forwarding to them information on any desired subject, and the 
ministers, vvith their assistants, by revising, condensing, eliminating 
duplications or errors, etc., from such reports, could provide the 
Department with data in a much more finished and desirable form. 
In brief, I consider the ])lan proposed b}^ the Department not only 
practical but business like and excellent. 

PiETRO CuNEO, Consid. 

Turin, Au^/vst 2Jf, WOIf. 



VENICE. 



In reply to the request contained in Department circular dated 
August -1, 1901, for the views of consular officers upon a plan for " the 
coordination and impro^Tment of existing facilities for the collection 
of commercial intelligence and the promotion of American trade 
interests abroad," I am necessarily somevvhat confined in my view to 
the experience which has come to me in Italy only. 

Taking into consideration the subjects submitted to consular offi- 
cers for report and investigation, it appears that, with rare excep- 
tions, they are intended ^o cover some specific topic of a purely local 
character — ^that is, within the district embraced by the consulate. 
To illustrate this: A consular officer is called upon, generally, to 
submit his views on the possible introduction with profit into his 
district of certain articles of American manufacture or production; 
this is perhaps the most common kind of report which is required 
in the service. Or a consular officer occasionally is directed to report 
on labor conditions, on emigration, on the methods and details of 
some industry, and the like. Lasth^, there is the so-called ''Annual 
Eeport," which covers the general yearly commercial and trade sta- 
tistics of the consular territory, with details of interest to American 
manufacturers and exporters. In all these instances the consular offi- 
cer bases his replies on personal observation and on inquiji2s among 
local dealers, manufacturers, the chambers of commerce, and local, 
municipal, and government officials. It is seldom that these methods 
fail to supply all the details which are necessary to meet the demands 
made by the Department of State, provided that the questions do 
not tend to reach too intimately into the workings of a private busi- 
ness. This occasionally happens, with the result that it is quite 
impossible to secure the desired information; nor would the inter- 
vention, in such event, of the diplomatic representatiTre prove of the 
least assistance. 



120 PROMOTION OF TRADE INTEKESTS 

However, in the second gronp of reports mentioned above, it is 
sometimes the case that, in order to obtain certain statistics or infor- 
mation, it may be necessary to have recourse to some government 
department, the local representative of which can not or will not 
supply the desired information, and it is to such exigencies that the 
plan evidently refers, for it is said in the circular, " It is to be under- 
stood that the Department would continue to communicate directly 
with consular officers as to matters pertaining exclusive!}^ to their 
districts." From the experience of the w^riter. the Department has 
always directed that he report only on conditions existing within 
his district. Nevertheless, as pointed out above, cases may occasion- 
ally arise where suggestions or specific information furnished by the 
diplomatic officer, together with the Department's instructions, would 
not only greatly facilitate and expedite the work of the consular 
officer, but would also enable him to give more accurate information, 
and in this particular would be a benefit and materially tend to 
increase the usefulness of consular reports. 

It appears to me, however, that the plan suggested by the Depart- 
ment, if put into operation, might seriously affect a phase of our 
consular service which has considerable to do with that utility to 
which reference is made by the Department in its circular; that 
jDhase being its independence and its distinctness from the diulo- 
matic service. This freedom — for a consul is directly subordinate to 
the Department of State, usually through a consul-general — from 
correction and direction b}' a service which is distinctly separate, is 
no doubt one source of incentive and accounts for much of the present 
activity and conscientiousness of the consular service. To remove 
partially that incentive would seem to risk a setback, unless the 
resulting gain in another direction would more than compensate for 
the loss. 

It has been aduiitted that it would be of considerable advantage to 
the consular officer, and consequently to the commercial interests of 
the United States, to have information regarding questions submitted 
by the Department of State furnished consular officers by their 
diplomatic representatives, but it has also been shown that the in- 
stances are verj^ few where it would be necessary for the obtaining 
of the required data to seek it through the representative at court. 
Heretofore when, on rare occasions, it has been necessar}^, the con- 
sular officer, I believe, has applied to the consul-general, or to the 
diplomatic officer through the consul-general, for the information 
desired. What data the consul-general is unable to supply he ob- 
tains readily from the ambassador or minister. The consul, there- 
fore, is accustomed, vrhen necessar}^, to apph^ to his consul-general 
for, and to receive from him, data of a special nature. It is also 
usually customar}^ for consuls and commercial agents to submit their 
reports to the Department of State through their consuls-general, and 
it is to be supposed that any notable errors would be called to the 
attention of the writer for correction before their reports were finally 
forwarded to Washington. This being the case, it would not 'be a 
charge to applj^ the plan to the office of the consul-general, which 
would eliminate the danger of subjugating the consular to the diplo- 
matic service. The office of the consul-general and the embassy are 
usually situated in the same city, and the officers thereof are in close 
touch with one another, so that when the consul-general could not 



PROMOTION OF TRADE INTERESTS. 121 

supply the information himself he could readily obtain it, as has 
been done heretofore when occasion demanded, by the diplomatic 
representative's good offices. Thus no change would be instituted 
in the present working of the two services. 

The plan of the Department of State, therefore, appears to me to 
be valuable in that it promises to enhance to American exporters the 
value of certain consular reports, but it seems to menace tlie inde- 
pendence of the service, which is of value as an incentive to its mem- 
bers to increase year by year its usefulness to American manufactur- 
ers and exporters. Inasmuch as the cases are few to which the plan 
would apply, and the work suggested may be performed by the 
consul-generars office, it appears to me that the plan vvould be more 
effective if applied to the consuls-general rather than to the ambas- 
sadors or ministers. 

It Avoulcl be running a serious risk of disastrous friction to have the 
two services touch at this one point and at no other. Either the con- 
sular service should be placed entirely under the direction of the 
diplomatic service or it should remain separate, as it has always been. 

RoBT. W. Bliss, Consul. 

Venice. October 3, 1904. 



3IALTA. 

Opinions of the Consul. 

"With reference to circular of August 4, Promotion of Trade Inter- 
ests, I would say that, never having been stationed in a country 
w^here I was subordinate to any authority other than the Department, 
I can h&rdly speak from practical experience as regards countries 
Avherein are located embassies and many consulates. I am placed in 
a peculiar position in that my district takes in a whole colony, and T 
am the only consular or other officer representing our Government. 
The local government is supreme, practically, and, being the only 
American officer here, I am able to secure without clela}^ any statistics 
or other official favors that I may require for ni}^ reports. I never 
have occasion to request or to provide information from or to any 
but the Department direct. 

As far as Malta is concerned, for the reasons I have above given, I 
can see no benefits likely to arise through making this office subor- 
dinate to any outside the Department. My duties are, to a certain 
extent, both of a consular and diplomatic nature. Quite a number 
of our consular officers are in a similar position. The Department 
does well to refer to " the spirit of initiative." Many of us are 
jealous of that right, and some could not do as good Avork if ham- 
pered. Most consuls interested in preparing and sending in reports 
have two objects in view\ One of them is to increase trade in Amer- 
ican goods in their districts, the other is to make good records and 
gain the approbation of the Department. This greatly tends to 
engender a spirit of initiative, which should be not only preserved, 
but also carefully guarded. 

With reference to countries in which are located, besides our em- 
bassies or legations, various consular officers, I have long thought 
that if in each there could be established an officer charged with the 



122 PROMOTION OF TRADE Il^TERESTS. 

duty of selecting trade topics of interest to our merchants, with 
authority to call upon the various consular officers in the countrj^ to 
Avhich he might be accredited for reports upon given subjects, the 
Department would be in a position to receive valuable matter in a 
comprehensive form w^here it now receives but a short, if useful, 
report covering only a limited territory. It is also very likely that 
if a consul, in preparing a report upon his own initiative, could secure 
from the capital city information and statistics in the manner indi- 
cated by the Department's circular, he would be enabled to make 
such report much more valuable. I apprehend that the chief danger 
would be in the matter of making appointments of commercial 
attaches. An appointee, alive to trade conditions and requirements, 
used to making investigations, required to often take the initiative in 
selecting trade topics for reports and calling upon his subordinates 
for assistance, could and would be of great service. On the other 
hand, one Avho made it a practice to rely upon a report from some 
active consul, that had to pass through his hands, and gain credit by 
incorporating it in his work, would but in time demoralize and deaden 
the spirit of initiative and enterprise of manj^ of our consular officers. 
One of the reasons why our service has been providing- so many 
reports is its freedom from intermediaries. Again, many of our 
reports are effective and lead to good results on account of being so 
promptly published after preparation. Often to delay publication 
merely for the sake of collecting a group of reports would render 
useless the object of the report. The general idea of a commercial 
attache seems to me to be a good one, but to need careful considera- 
tion in working out. 

John H. Grout, Consul. 
Valetta, Sejjtemher 28, W04- 



NETHERLANDS. 

Opinions of the Consul-general. 

I have the honor to acknowledge receipt of Department circular 
dated August 9, 1001, inclosing copy of a circular entitled " Promo- 
tion of trade interests," sent to American diplomatic officers. The 
Department desires my views, and I beg to present the following: 

In the first place, I should consider it highly desirable that a closer 
connection of some sort be established between American diplomatic 
and consular officials in order that a consul may feel authorized and 
quite free to apply to the legation of the country in which he is lo- 
cated for information necessary for reports. Facts are frequently 
called for in reports to be made by consuls under instruction from 
the Department of State which can not be ascertained except through 
the various legations, and when the aid of legations is invoked in such 
cases it is sometimes cheerfully given; at others in an indifferent 
manner if not under silent protest, and besides, as a rule only after 
long delay. 

It is a well-knoAvn fact that no European Government departments 
or authorities are very anxious to furnish any important statistics or 
facts as to the status of the industrial and "^commercial interests of 



PEOMOTION OF TKADE INTEEESTS. 123 

their respective countries, particularly to American inquirers, as they 
are very jealous of our enterprising and pushing manufacturers and 
fear that the aggressive commercial campaign carried on by our busi- 
ness men in Europe will interfere with the success of the native manu- 
facturers and dealers. Such information is seldom cheerfully given. 
It is perhaps only natural that ambassadors and ministers, for whom 
it is very desirable to be on a friendly footing and have nothing but 
pleasant relations with the various cabinet officers and chiefs of de- 
partments of the (rovernments to which they are accredited, should 
hesitate at times to present a long string of questions, required for 
some report by a consul, when he (the ambassador or minister) knows 
that this request will cause even momentary displeasure or annoy- 
ance to the department chief in question. 

It would, therefore, be very gratifying if means could be found 
whereby cooperation between the dij^loniatic and consular service 
could be established. It is, according to European ideas, hardly 
proper or consistant with the dignity of an ambassador or minister 
that he, iti his official capacity, should appear to take an active inter- 
est in manufacturing and mercantile affairs or as a seeker of infor- 
mation in this direction, and for this reason it would, iii my opinion, 
be more desirable and in every way more advantageous to our coun- 
try if commercial attaches were sent to the various legations. These 
should be active, intelligent men, with a commercial or considar 
training, ayIio would miderstand the requirements of the American 
commercial and industrial interests, and know just what kind of sta- 
tistics, facts, and general information would be required by our busi- 
ness men. Their position as attaches of legations would give them 
the entree at the various departments of the government in the coun- 
tries where they were* stationed, and they should cultivate the acquaint- 
ance and establish friendly personal relations not only with the 
heads of departments, but also with chiefs of bureaus, chief clerks, 
and other officials with whom it might be desirable to come into con- 
tact in order to gain any information desired for reports, etc. In this 
manner much valuable information could be obtained which it 
Avould be Avell-nigh impossible for a minister to secure through a 
A^ritten official request, and, what is of great importance, it could 
often be obtained in a day, whereas we now often have to wait two 
or three months in order to get some simple question answered 
through the usual official channels. 

I should, however, feel inclined to advise against any further 
change in the official relations of the diplomatic and consular officers 
than that the consid should feel free and have the right to call on his 
legation at any time for information required for reports which 
could not be obtained except through such legation, and that the 
commercial attache should then procure such information, if obtain- 
able, as speedily as possible. In other words, I would not consider 
it advisable or for the best interests of the service if consuls received 
i-equests for reports through the legations instead of, as now, direct 
from the Department of State, nor should the reports be transmitted 
to the Department through "the legations for the purpose of having 
the minister correct, revise, or strike out portions which he might 
not approve of. Friction might easily arise. If a commercial 
attache was stationed at the legation, he might know as much about 
the contents and aims of the report of the consul as the latter — seldom 



124 PROMOTIOIS^ OF TRADE INTERESTS. 

more, provided the report was written by a consul who had seen 
some service, and, consequently, had some experience and knowledge 
of the conditions in his district; but with all due respect to our 
ambassadors and ministers, I would venture to submit that, while 
they undoubtedly are highly capable gentlemen, far superior to con- 
suls in knowledge of diplomacy and statecraft, the}^ would not, as a 
rule, be as well posted on the intrinsic value of a report for com- 
mercial or industrial purposes as the average consul. 
. Again, in case the supervision of reports was left with the com- 
mercial attache: While any consul, as a good disciplinarian, cheer- 
fully accepts and executes any order issued by the Department of 
State, he would not like to have some 3^oung attache dictate to him, 
and perhaps curtail or change a report upon which he (the consul) 
had expended much time, thought, and labor. It might happen, as 
an American -minister lately expressed himself to me, that " some 
3^oung attaclie might try to lord it over the consuls." I do not think 
that any good results would evolve from a change giving the legations 
supervision of consular reports, and friction might ensue. 

xit the risk of being suspected of arguing for personal promotion, 
I would venture to offer the suggestion that the consuls-general of 
the various countries, or at least some of them, might be fit subjects 
to be considered in connection with the appointment of commercial 
attaches. The consuls-general are stationed at or near the capital 
of the cor.ntry they reside in, and there could probably be no objec- 
tion to giving them the grade of '' commercial attache " in connection 
with the office of consul-general. They would then have the entree at 
government departments and bureaus, and would know just where 
and how to get the information desired by them and by the consuls 
of their respective districts, which latter could apply direct to the 
commercial attache for all needed information. 

By following this course, the expense of stationing a commercial 
attache at the various legations would also, to some extent, be mini- 
mized, as it would probably only be necessary to allow a consul-gen- 
eral designated as attache an extra clerk in his office or a moderate 
increase of his salary. 

S. LiSTOE. Consul- General. 

Rotterdam, Septeml)er P, 190 J^. 



Opinions of Consul at Amsterdam. 

I have the honor to transmit herewith the following memorandum 
on the " Promotion of trade interests," in accordance with the instruc- 
tion of the Department contained in circular dated August, 1904, 
inclosing a copv of circular to the diplomatic officers, dated Julv 
29, 1904 : 

I assume that at the present epoch the main work of both Ameri- 
can diplomacy and consular effort is to further the commercial inter- 
ests of the United States. At an earlier time the protection of the 
American citizen and American citizenship was an important func- 
tion of the consular as well as the diplomatic officer, and the necessity 
of such protection led to the establishment of even many consular 
offices, and Avas invoked as an efficient argument for the presence of 



PROMOTION OF TRADE INTERESTS. 125 

large naval forces on foreign stations. AYitli the spread, however, 
of the principles of western civilization over all the AvorlcL even in 
the less enlightened regions, the closer relations following the estab- 
lishment of steamship lines, cables, international business and bank- 
ing houses, and the extension, given latterly, to missionary effort and 
foreign travel; with all these changes in the aspect of things inter- 
national, our officers, civil and military, do not stand in loco parentis 
to their fallow-citizens tem.porarily abroad to the extent that pre- 
vailed in those former periods of comparative isolation; while in 
European countries, at least, the American denizen or transient, or 
those that represent American interests, much less seldom invoke the 
assistance of the Governinent's officials in maintaining their personal 
rights, but in case of difficulties consult local attorneys, like residents, 
and resort freely to the local courts, as any other citizen or subject of 
the country. 

Tn any discussion of this and allied topics we may then, I think, 
premise : 

1. That it is conceded that all the foreign government agencies of 
the United States, diplomatic, consular, or naval, find their largest 
measure of justification and their most constant employment in fur- 
thering directly and indirectly the commercial interests of our 
country. 

2. That there is prevalent ver}^ little, if any, spirit in our diplo- 
matic service that the consideration or adjustment of commercial 
questions is beneath its dignity. 

3. That our diplomatic representatives, quite independently of their 
ability to represent our Government properly and creditably from the 
purely diplomatic standpoint, are generally possessed of the business 
capacity to aid the consular officers wisely in matters of that character. 

With respect to the Netherlands : 

The situation here is somewhat peculiar. In this country w^e have 
two diplomatic officials and seven consular officers, not including the 
clerk of this consulate, who is and long has been, for all practical pur- 
poses, deputy consul. The consulate-general at Rotterdam is twenty 
minutes and Amsterdam forty-five minutes from The Hague. The 
Hague, which is locally designated as the residence of the sovereign, 
if it be a capital,^ is so in a sense that is also quite peculiar. It is 
officially the seat of the royal residence. The chambers of parliament 
also meet there, but the distances from the homes of the members are 
so short that few, if any, except the The Hague representatives, reside 
there even during the sessions. 

Xor is The Hague the scientific center, and the universities are at 
Leyden, Utrecht, Amsterdam, and Groningen. Add to this absence 
from The Hague of the chosen representatives of the people who are 
activth' engaged, generally speaking, in the ordinary avocations of 
life and I doubt if there be any capital in the world that is more com- 
pletely detached from the ordinary commercial life of the country 
than The Hague. The Dutch saying that fortunes are made in Rot- 
terdam, consolidated at Amsterdam, and spent at The Hague is a 
sufficiently accurate characterization for our purpose. Amsterdam is 
to the Netherlands, of which it is locally called the Hoofdstad — chief 

a There is no capital provided, by statute, and Amsterdammers. at least, always 
refer to their city as the capital. 



126 PEOMOTION OF TEADE IIS^TERESTS. 

city— what New York is to the United States, with something of the 
character of a capital added, while Eotterdam, lying at what is com- 
mercially at least the mouth of the Rhine, rivals Antwerp as a fast 
growing contestant of Hamburg's supremacy, long held as the pre- 
mier port of the continent. 

Under the present minister at The Hague and during his absences, 
while Mr. John W. Garrett has been acting as charge d'aifairs, which 
period covers my service here of five years, both consular officers, as 
I understand, certainly the incumbent of this office, have been prac- 
tically commercial attaches, through the practice initiated by the 
legation and responded to by the consulates of coordinating generally, 
and I believe successfully, the actual work to which Ave fell common 
heir, the diplomatic representatives calling upon us at intervals, and 
we seeking certain data through the legation's good offices whenever 
our local resources fell short. 

In this entire jurisdiction I think, however, instead of creating 
friction it Avould simplify matters materially in case comprehensive 
inquiries of a certain character from the Department should be sent 
directly to the legation here to be either prepared, Avith the aid or co- 
operation of the consular officers, or finally annotated, cut down, re- 
shaped, or amended, or, if the minister should deem it Avise, to direct 
either or both officers, or anyoiie he sees fit, to prepare the report. The 
class of reports that I have in mind, and in making up which time is 
not usually a prime consideration, are the annual reports for Com- 
mercial Relations, in Avhich, as at present transmitted, there must be 
a vast deal of redu})lication ; such inquiries as have been made on the 
mercantile marine in foreign countries, emigration, rivers and har- 
bors, trust and trade combinations in Europe, in short those elaborate, 
statistical, sociological, and economic inquiries of large scope, Avhich 
the legation from its undoubtedly Avider view point could plainly bet- 
ter direct. 

Furthermore, it may be that the legation could more efficiently and 
readily secure the right kind of statistical data, properly tabulated, 
Avhich in a complete form is often painfully lacking in these full re- 
ports, hoAvcA^er A^oluminous the isolated figures transmitted are. At 
any rate, all three agencies endeavoring at the same time, quite in- 
dependently of one another, to secure from the goA^ernment identical 
data Avould be aA^oided. 

With respect to the larger countries, such as Brazil and Germany, 
for example, AAdiere the facilities at the capital are immeasurably su- 
perior to those of the seats of the outlying consulates and where the 
local consular officer is almost certain to be affected by the sentiment 
and interests of the State where he is located, my opinion is that the 
more closely such officers could be brought under the supervision of 
the legation Avithout being subjected in their Avork to Avhat might 
easily become in practice the A^exatious interference of inexperienced 
subordinates, the more desirable it Avould be-. Consuls-general in such 
countries Avould not generally, being consuls themselves Avith clearly 
defined districts, be able or perhaps Avilling to direct consular officers 
under their jurisdiction Avith the unquestioned authority of the dip- 
lomatic representative, either minister or full secretary of legation. 
I should suppose that such an officer as commercial attache Avould be 
a very useful adjunct to the legation. Such reports, for example, as 
those made by Mr. Gastrell, of the British service at Berlin, on the 



PROMOTION OF TRADE INTERESTS. 127 

larger as^Dects of foreign trade and finance, which have been thought 
so vahiable «s to be reprinted entire by the Department of Commerce 
and Labor at Washington in the Monthly Summaries of Commerce 
and Finance, could scarcely be made by any American consular officer 
charged with the routine duties, day in and day out, of our office % 
Further, under the recent, and as I believe wise tendency to restrict 
consular officers to their districts as regards the subjects, in the main, 
of their reports, though not the method of treating the same, consular 
officers, not consuls-general, would not feel at liberty to take up such 
exhaustive inquiries on their OAvn initiative. 

My op'nion is that an added official to the legation personnel, under 
present conditions as described, w^ould not readily find a great deal 
to occupy himself with, and that he might easily, and perhaps quite 
unconsciously, if, after having gotten his official statistics from the 
central government offices at The Hague, he sought to push his in- 
C[uiries, which w^ould then have just begun at Rotterdam and Amster- 
dam, become a disturbing rather than a connecting link between the 
legation and the consulates subordinate thereto in their common 
Avork. For example : It took the present incumbent of this office the 
better part of his first two years at this post to establish relations 
with the most effective helpers here for his purposes, and some, at 
least, of these gentlemen who aid so cheerfully in the voluntarily 
imposed task of supphdng or helping to secure data take a pride in 
the fact that they have been singled out as authoritative persons in 
their branch. T^^iile, of course, they are not by any means the exclu- 
sive sources of supply, and information is gathered in all waj^s open, 
yet if a legation official should begin to organize here, independently, 
by letter, or personal intercourse, a sort of bureau of information, 
he might, perhaps, estrange present helpers and hamper or damage 
seriously the little " bureau of publicity " which has been slowly 
built up here. 

In general, hoAvever, I am prepared to believe that some carefully 
thought-out plan can be adopted that will coordinate more perfectly 
the commercial work of botli the diplomatic and consular agencies, 
without impairing at all the spirit of initiative on the part of the 
consular corps, and without throwing upon our diplomacy a mass of 
consular work which it has not the time, taste, or machinery to 
dispose of. 

Frank D. Hill, Consul. 

Amsterdam, Sejoteqnber 27^ 1904,. 



RUSSIA. 

Opinions of the C onsvl- General. 

I have the honor to acknowledge receipt of the Department's circu- 
lar under date of the 4th instant, and to say in reply that I fully 
approve of the suggestion contained therein, that commercial at- 
taches to our embassies and legations be created to better facilitate 
foreign trade relations w^ith our country. I am satisfied that through 
this influence, with the advice and assistance of our ambassadors and 
ministers, great advantage would be realized by consuls-general or 
consuls in the performance of their duties, especially in a city like 



128 PROMOTION OF TRADE INTERESTS. 

St. Petersburg, where it is very difficult to get information from the 
various ministers upon trade matters. I would recommend, how- 
ever, that, instead of creating new and special officers in this capacity, 
existing consuls-general and consuls be made also commercial at- 
taches to American embassies and legations, thereb}^ giving all the 
advantages without the expense to our Government for separate 
members of the staffs of our embassies and legations. I believe 
results under this arrangement would be productive of more good, 
and without the chance of complications or friction arising between 
consular officers and commercial attaches, than if the offices of sep- 
i)rate commercial attaches were created. 

Ethelbert Watts, Consul- General. 

St. Peteesburg, August .^-5, WOJf. 



Opinions of other Consular Officers. 

BATOOM. 

I have duly come into possession of the circular of the Depart- 
ment, dated August 4, covering copy of a circular to the American, 
diplomatic officers in regard to a plan for the coordination and 
improvement of existing facilities for the collection of commercial 
intelligence. The contents of the circular to the dix^lomatic officers 
have had my careful attention, but in view of the fact that my con- 
sular appointment only dates from a few months back, I do not feel 
that I have had sufficient experience of the working of the system 
now in force to warrant my offering an opinion as to any modifica- 
tion thereof. Speaking from a business point of view, I should 
say that the scheme outlined in the circular of the Department would 
certainly tend to efficiency and reliability^ It appears to me, however, 
that it would be desirable that reporting consular officers should be 
notified of the annotations or corrections made on their reports by the 
respective diplomatic officers, with a view to thoroughly elucidating 
the points in question and at the same time, such a course would 
enable the consular officers to rectify, for future guidance, any inac- 
cturacies in the information recorded in their offices. 

W. H. Stuart, Acting Vice-Consul. 
Batoom, Seftember ^4? 190.1^. 



TVAJRSA'SV. 



I have the honor to reply to the Department's instructions, dated 
August 4, in reference to the participation of the diplomatic service 
in the promotion of American trade interests, as follows : 

Many diplomatic officers take a lively interest in the promption 
of our commercial prosperity as it is, and it is through the embassy 
that much of the statistical data to be obtained in this country is 
obtainable. I feel, however, that, in Russia especially, the active 
participation in commercial affairs \yy the diplomatic officers accred- 
ited to its government would lessen the dignity and, perhaps, reduce 
materially the prestige now possessed by American embassies. 



PKOMOTION OF TRADE INTERESTS. * 129 

I assume the proposed plan to mean the addition of a commercial 
bureau to each embassy. In Kussia, from the status of the people 
with whom diplomatic officers are most in contact, I fail to see 
how the new bureau would accomplish its purpose unless departing 
from those associations, and this departure would, I think, lessen 
the rights which should be inherent in the highest diplomatic officer 
of our Government. 

Presuming the new bureau to become a fact, what can it accomplish 
toward the actual promotion of American commercial interests which 
the properly exercised functions of the consul-general, usually located 
in the same city, will not do? The transmission of reports via the 
embassy would, in my opinion, retard somewhat our commercial 
activity, especially in regard to reports Avhich I consider to be in 
the emergency class — reports of opportunities existing for the Amer- 
ican manufacturer, of which immediate advantage must be taken, if 
at all. 

I would, of course, welcome any addition which would tend to our 
commercial growth abroad, but I certainly do not feel that the amount 
of gain commercially would compensate for the loss of position. I 
do not doubt that the circumstances may differ vastly in other gov- 
ernments, but as to Russia I feel convinced as to what is above 



outlined. 

Warsaw, August 29, 1901^. 



Clarence Rice Slocum, Consul. 



SPAIN. 

Rejyort from Minister Hardy. 

American Legation, 

Madrid, Octoler 18, 190Jf. 

In reply to your circular of July 29 last, on the " Promotion of 
trade interests," which I find here on my return from leave of ab- 
sence, I have the honor to submit the following considerations : 

As regards the first part of question 2, Spain has at present no 
commercial attaches, and relies entirely upon its consular officers for 
the promotion of its trade interests abroad. The existing law pro- 
vides for commercial attaches, and some years ago was for a time 
in practical operation: but I am informed the results were very un- 
satisfactory, the law was allowed to lapse, and is not likely to be 
revived. It is alleged that the chief reason for the discontinuance 
of commercial attaches was that they engaged in trade. As this is 
not a necessary result of the system and could easily be checked by 
suitable regulations, I am inclined to believe that the poor results 
must be ascribed to other causes, such as defective organization and 
the desire for economy, and that the experience of Spain affords no 
real argument against the usefulness of the officers in question. 

In reply to the second part of question 2, " Would such attaches, 
in your judgment, be useful for the United States?" I have no hesi- 
tation in answering in the affirmative, provided — 

First. That competent men were appointed. By competent I mean 

II. Doc. 245, 58-3 9 



130 ' PROMOTION OF TRADE INTERESTS. 

that they should have both commercial training and commercial ex- 
perience, and should speak the language of the country to which they 
are sent. 

Second. That adequate provision was made for efficient work. By 
adequate provision I refer not only to the compensation required to 
secure competent men, but also to the facilities for travel which should 
be afforded whenever the collection of facts and data made personal 
observation or investigation important, and to the clerical assistance 
necessary in the preparation of reports. 

Third. That such an adjustment of duties was made between the 
consular officers and commercial attaches as would preserve the 
initiative of the former and obviate friction. 

' In other words, a man who makes an excellent secretary of lega- 
tion would as a commercial attache be a useless incumbrance unless 
specially qualified for the work, and unless afforded proper facilities 
would not achieve results superior to those attained under the pres- 
ent s^^stem. ^'\niile under the present system valuable reports on 
the industrial and commercial interests of their districts are made 
by the consuls or consuls-general, the fact that the duties of these 
officers rarely permit them to go outside of their districts renders 
their reports incomplete and local in character. I do not believe that 
under a suitable adjustment of duties the value of these local reports 
would be impaired by the creation of commercial attaches, while on 
the other hand these latter, having, as diplomatic officers, immediate 
access to the centers of official information, would be able to supply 
that comprehensive information on subjects of general interest and 
importance to which the circular refers. 

The general plan outlined in question 1 presents to my mind no 
difficulty if it contemplates the assignment of a commercial attache 
to the mission. It would often be embarrassing for the head of 
the mission to undertake to revise and supplement consular reports 
in answer to instructions for particular inquiries from the Depart- 
ment. No such embarrassment would arise in the case of a com- 
mercial attache, who has, strictly speaking, no diplomatic function; 
that is, whose duties are understood to relate solely to commercial 
affairs, and whose connection with tha legation or embassy is chiefly 
for the purpose of securing for him free access to the ministerial 
departments of government specifically concerned with trade inter- 
ests. ^Vliile the head of a mission may render valuable assistance 
in the promotion of the trade and commerce of the country which 
he represents, his influence in this respect will, in my judgment, 
be far greater if the diplomatic and commercial interests of the 
missison are, so far as he is concerned, kept distinct. 

Moreover, his contact with business men and his knowledge of the 
movements and opportunities of the business world are far less inti- 
mate than would be those of an attache specially qualified and 
assigned to such work. Nor can he consistently with his other duties 
absent himself from the capital for investigation or consultation. 

Our consular service is generally recognized abroad as most effi- 
cient, and its efficiency has steadil}^ increased. It labors, however, 
under certain disadvantages: First, the fact that it has no direct 
access to central sources of information, and that the indirect access 
supplied by the mission is slow and not always thorough ; second, 
that its officers, for obvious reasons, are not ahvays able to obtain the 



PROMOTION OF TRADE INTERESTS. 131 

large view or grasp of general subjects necessary to complete and com- 
prehensive reports, and, third, that, although theoretically a commer- 
cial agent, it sometimes happens that a consular officer has had no 
bnsiness training or experience whatever. 

These defects would be remedied by the appointment of commercial 
attaches if, as alread}^ indicated, they were qualified to act as such. I 
see no practical difficulty in the way of such appointments, and have 
observed none in the case of the commercial attaches of Great Britain 
and Portugal at this post, both of whom are exceptionally efficient 
officials. On the contrary, I have frequently had occasion to observe 
the thoroughness of their work and their extreme usefulness in afford- 
ing information to their heads of mission as well as to their Govern- 
ments. 

Arthur S. Hardy. 



Opinions of Consular Offi^cers. 

CAKTHAGEXA. 

As I am unacquainted with the duties attaching to the diplomatic 
service, I can offer no opinion as to the feasibility of the proposals 
embodied in the Department's circular. Speaking on general lines, 
it would seem advisable to have some centrally located officer, who 
could obtain any desired information from official sources. Such 
information would probably be of a statistical character, and would 
most likel}^ be obtained at the expense of some loss of time, due to the 
slow routine which characterizes all government (offices in this coun- 
tr}^ Apart from statistics, I think that local officers in close touch 
with importers and exporters are beter qualified than the diplomatic 
service to state facts and offer opinions regarding the conditions of 
trade in their respective localities. 

Jos. Bc^WKOisT, Consul. 

Carthagena, September 7, IQO.'i.. 



JJEKEZ FKONTEKA. 



I have the honor to state, in answer to circular dated August 4, 
1904, that in Jerez, a city of 65,000 people, there are no records of ves- 
sels arrived and departed, nor any of Spanish and foreign tonnage 
engaged in export and import trade. The city taxes nearly every- 
thing that comes in, in addition to customs duty, but there is no rec- 
ord kept, for the reason that the business of taxing imports into the 
city is farmed out to private parties who pay the government a cer- 
tain sum for the privilege, and these parties are not willing to make 
public the quantity of imports nor the amount collected. Although 
taxes are levied on all live stock in the district, as well as on real 
estate and improvements, there is no record accessible to supply infor- 
mation. All these statistics can be obtained at Madrid from the gen- 
eral offices by our minister. It is especialW true of Spain that our 
niinister at Madrid, cultivating agreeable relations with the depart- 
ments, can furnish valuable statistics impossible for cousuls to pro- 



132 PEOMOTIOlSr OF TEADE INTERESTS. 

cure. Generally, a minister's more influential position, political and 
social, provides much greater possibilities than a consul's. 

M. M. Peice, Commercial Agent, 
Jekez FrO'Ntera, Septemher _/, 190 If.. 



MAIiAGA. 



Rephdng to Department circular, "Promotion of trade interests," 
I would say that the scheme as outlined in the accompanying circular 
to the diplomatic officers appeals to me as being an excellent one for 
the purposes stated. During my twenty months of service, it has 
many times occurred to me that a coordination along the lines sug- 
gested would eliminate many elements of uncertainty and more fully 
cover all points of interest without danger that items of commercial 
value would be lost by reason of misunderstanding. 

Sweeping changes are often made in the laws and regulations of 
a foreign power, which even if not of commercial importance are 
interesting in a general way. Such changes, affecting all Spain, 
could, I think, be more comprehensively reported by the diplomatic 
officer in Madrid, for the ver}^ reason stated in the Department circu- 
lar, " The inability of consular officers to reach the center of official 
information." It may be, hoAvever, as is the case in Spain, the capi- 
tal city not being an exporting center, that changes of a commercial 
character will not come prominently^ to the attention of our minister ; 
but if closer relations were established between consular and diplo- 
matic officers, the danger of losing a valuable piece of information 
would be lessened. 

My official relations with our present minister in Madrid, Hon. 
Arthur S. Hardy, have been confined to a line of correspondence other 
than commercial, but I have always had ready reply and wise counsel 
upon such matters as I addressed to him. I would be glad to be 
brought more closely into contact with him, and would take pleasure 
in rendering him all assistance possible. 

D. E. Birch, Consul. 

Malaga, Noveinber 7, 190 Jj.. 



SEVLLtE. 



Replying to the Department's circular, " Promotion of trade inter- 
ests," I would state that Avith my long and A^aried experience in both 
the diplomatic and consular serAdces I am decidedly of opinion that 
our commercial relations Avith foreign countries Avould be greatly 
benefited \yj means of cooperation with the diplomatic serAdce. 
Commercial or industrial attaches at our embassies and legations 
Avould iindoubtedh^ bring about surprisingly good results. 'Such 
representative ought to be thoroughl}^ familiar with the products 
and manufactures of the United States, the language, customs, and 
requirements of the country to Avhich he is accredited, its resources, 
importations by country of origin, existing commercial treaties, etc. 
MoreoA^er, agencies established at capitals would have a grand oppor- 



PROMOTION OF TRADE INTERESTS. 183 

tunity for obtaining early information, which might lead to a large 
sale of our products and manufactures in the construction of public 
works, railroads, telegraphs, new inventions, and many other ways 
too numerous to mention. 

Important trade reports, the scope of which cover a whole nation, 
might best be furnished to such agent, since in many instances but a 
portion of the queries now sent to us are applicable to all of the 
consular districts of the country. Undoubtedly a commercial or in- 
dustrial attache, by the aid of the diplomatic representatives, would 
be enabled to gather a great deal of important information and sta- 
tistics connected with the trade which it is difficult, if not impossible, 
for a consul to obtain. 

The world's commerce is daily becoming more and more competi- 
tive, and if we desire to increase our own no means for doing so 
should be overlooked. A commercial attache should be stationed at 
every capital, with facilities for obtaining and disseminating infor- 
mation. He should have at hand statistics, newspapers, and direc- 
tories of the leading cities, reports from various chambers of com- 
merce — in fact, his office should be a bureau of information to the 
Government and o,ur merchants. There is no necessity for friction 
between his office and the consulates since the object is to benefit the 
nation, and I would give my most hearty cooperation to anyone who 
might hold such office. 

We have our militar^^ and naval attaches, whose duties are to 
gather information for their respective Departments. Information 
relating to industrial and commercial affairs obtained by commercial 
attaches would be for the benefit of our industries and manufactures, 
and this object appears to me of quite as great national importance 
as any information that might be gathered by the two former. 

R. M. Bartleman, Consul. 

Seville, August 26, 1904. 



SWEDE]^^ AND NORWAY. 

Report from Minister Thomas. 

American Legation, 
Stockholm, Au.gust 25., 1904. 

I have the honor to acknowledge the receipt of circular instruction 
of July 29 upon the " Promotion of trade interests '' and to submit 
the following memorandum in reply thereto, premising that as I am 
now on the eve of departure for America upon leave of absence my 
reply must necessarily be brief. 

In regard to point 1 of the circular this question seems naturally 
to arise: As our consuls are preeminently commercial officers, and 
as their reports of recent years have been so able, thorough, and imme- 
diate as to be the object of imitation and emulation by other nations, 
are not they (our consuls) as a rule better informed upon the com- 
mercial and industrial subjects upon which they naturally report to 
the Department than are our diplomatic representatives; and if so, 
would the reports of our consuls be improved by being revised and 
annotated b}^ our diplomats? Furthermore, would not such subor- 
dination of consuls to diplomatic representatives inevitably give rise 



184 PEOMOTION OF TEADE INTERESTS. 

to that friction between the two branches of the service and dampen 
that spirit of initiative on the part of the consular corps, the danger 
of which is indicated in the circular ? 

In reply to point 2, I beg to state that I am informed by the for- 
eign office that commercial and industrial attaches are unknown to 
the diplomatic service of Sweden and Norway. 

Such attaciie.- could no doubt be useful, but is there not danger 
that the chief consular officers at the capitals Avhere such attaches 
were stationed would regard them as in some sense duplicate constils, 
and consider that if the commercial attaches w^ere appointed specialh^ 
to report iipoii commercial matters the constilar officers were in some 
measure relieved from doing so, at least in so full and thorough a 
manner as at present 'I 

Under existing conditions, and with our diplomatic and consular 
corps constituted as they are, the exports of the United States, not 
only of raw materials, but also of manufactured products, have in- 
creased of late years both in volume and in value in those magnificent 
proportions whicii form, I apprehend, a record in the commercial 
history of the world. 

William W. Tho:mas. 



O pinions of Consular Offi.cers. _ 

BEKGEN. 

Eeplying to circular. "' Promotion of trade interests," I think there 
is no doubt but that in general diplomatic officers can and do render 
consular officers invaluable assistance in gaining commercial infor- 
mation ; and tlie closer the relations the better it will be for obtain- 
ing trade information, and, in most cases, the more reliable and 
up to date will be the information given in consular reports. The 
sources of obtaining the best and most recent data on subjects are 
always open to our diplomatic officers, which is not true in every case 
of consular officers, especialW Avhen the}^ do not reside in the capital. 

In Sweden- Norway, however, our legation is situated at Stock- 
holm (Sweden), while the offices where recent information can be 
obtained concerning commercial matters are at Christiania (Norway) , 
so it would seem the advantage with reference to Norway will not be 
so great. Nearly all information not published must be obtained 
from the ministerial officer in charge, who is located in Christiania, 
and for this reason it sometimes happens that up-to-date information 
can not be obtained by the consul-general in Christiania, when our min- 
ister w^ould reojuire greater time and be no more reliable. It seems to 
me that answers to questions requiring up-to-date reports, covering 
the entire country of Norway, can only be obtained by the constrl- 
general, since he is the only officer who has an opportunity to per- 
sonally visit these bureaus. That he will assist other consular officers 
in Norway so far as his time permits in obtaining information on 
subjects in which they are specially interested there is no doubt, and. 
being on the ground, he will, I think, be able to procure more 
promptly up-to-date information than would our minister at 
Stockholm. 

E. S. CuNNINGHA^Sr. CoHStlL 

Bergen, Septerroher 12. 190 1^. 



PEOMOTIOK OF TRADE INTERESTS. 135 

CHKI8TIANIA. 

I have the honor to acknowledge receipt of circular, " Promotion 
of trade interests," and in answer express my views on the subject, 
as requested. 

The Christiania consulate is somewhat singularly situated, inas- 
much as Sweden, where our legation is located, and Norway, are 
both independent states, with their separate governments and laws. 
During the time I have held the Christiania consulate, I have never 
experienced any special difficulty in obtaining information on sub- 
jects of interest for the promotion of American trade. Commercial 
information is generally secured from merchants and importers wdth 
whom I have become acquainted. When called upon to furnish 
information regarding state institutions and other similar matter, I 
have always been able to secure it by applying, either by letter or 
verbally, to the proper department. Matters of a specific diplomatic 
nature, if such should come to hand, will promptly be referred to the 
legation at Stockholm. 

Henry Bordewich, C onsvl-General. 

Christiania, Atigust '26^ lOOJi.. 



GOTHENBURG. 

With reference to the circular of August 4, I beg to say that I 
think the proposition in said circular is a good one, especially for the 
purpose of obtaining statistics which the consuls are often called 
upon to furnish in official reports. 

I have often found it difficult to obtain the data wanted. The 
complete statistics of imports and exports, industries, etc., are pub- 
lished so late that they are practically of not use. Preliminary or 
incomplete statistics are, to a certain extent, issued earlier; but as 
they are printed in the capital they could most easily and quickly 
be obtained by the officers stationed there. It should be remembered 
that the statistics cover the whole country, although the complete 
statistics give certain facts for each port or county. Consequently, 
a consul must either give the figures for the whole country, or must 
laboriously add together the figures for all the cities w^ithin his con- 
sular district, if he is requested to report upon his own district alone. 
Certain statistical reports from Swedish officers and corporations 
are never published, but simply kept in the archives in Stockholm, 
and a consul stationed at another place could not, without consider- 
able trouble and expense, obtain a statement of their contents, but 
expenditures for obtaining information for reports are seldom 
authorized. 

Incomplete statistics about the shipping and import and export of 
a city, are usually published in the local newspapers; if the consul 
wants these figures earlier or more in detail, he must pay local officers 
for preparing the statements from the written registers or records. 
But information which can be given without much work or writing 
can usually be obtained, and has been obtained by me, free of charges 
through the courtesy of business men and local officers, in the city 
where the consular officer is residing. 

If the proposition is carried into effect, the consular officers could, 



136 PROMOTION OF TRADE INTERESTS. 

of course, continue to furnish information as to the names of import- 
ers, etc., in their respective cities, to American manufacturers and 
exporters asking for such information, and could also find out the 
opinion of merchants about American goods in the market or about 
to be introduced, about packing, terms, and other matters of similar 
character. 

I think, however, that a consular officer called upon to furnish cer- 
tain information ought to be told whether or not the same request 
or questions have been sent to an}^ other consular officer within the 
same country. 

RoBEET S. S. Bergh, Consul. 
Gothenburg, August 31^ 190 Jf, 



SWITZERLAND. 

Report from, Minister Hill. 

American Legation, 
Berne., August 16, 1901^. 
In reply to the Department's circular on the " Promotion of trade 
interests," dated July 29, 1904, 1 have the honor to make the following 
observations : 

1. It w^ould be entirely practicable for this legation to transmit to 
consular officers of the United States in this country instructions 
from the Department making particular inquiries, with such sug- 
gestions as would be likely to aid them in securing desired informa- 
tion. It would also be practicable to supplement their reports with 
such information as the legation might, in addition, be able to obtain. 
The '• revision " of such reports w^ould, however, seem liable to incur 
a double disadvantage: (1) A divided responsibility for the contents 
of the reports; and (2) the possibility of a misunderstanding and, 
perhaps, discussion, betw^een the legation and the consulates. It 
would, possibly, meet entirely the needs and views of the Department 
if, in a separate and additional report from the legation, any errors 
or omissions which might be observed in the consular reports were 
pointed out, together wdth any expressions likely to give offense to 
the Swdss Confederation. 

2. No such cooperation as that outlined above exists, so far as I can 
ascertain, betw^eeii the diplomatic and consular services of Switzer- 
land. The Swdss Government has no commercial or industrial 
attaches. 

In answer to the question whether, in mj^ judgment, commercial 
attaches connected Avith the diplomatic missions of the United States 
would be useful, I have to reply that, while in my opinion, commer- 
cial experts might prove exceedingly useful to the commerce of the 
United States, it would not be desirable to connect them with the 
diplomatic body. The reasons for this view are: (1) that their 
duties w^ould naturally associate them more intimately with the con- 
sular service; (2) that no distinct advantage would be derived from 
their connection with the diplomatic representation which could not 
be otherwise obtained; and (3) that questions and incidents might 
easily arise through the employment of the diplomatic representation 



PROMOTION OF TRADE INTERESTS. 13 if 

as a commercial agency which would tend to embarrass its operations 
and diminish its influence in those matters for which a diplomatic 
mission is specifically intended. That a diplomatic representative of 
the United States should be deeply interested in the commercial ad- 
vantage of his country, and that he should labor assiduously to pro- 
mote it are propositions too obvious to be discussed; but that he 
should be directly responsible for the acts of an exclusively commer- 
cial representative connected with his official family might prove a 
cause of anxiety and of inconvenience. An aggressive commercial 
campaign in any country is not unlikely to excite a certain measure 
of opposition among its people and officials. It does not detract from 
the desirability of conducting it to say that a diplomatic officer can 
be more useful as an aid in accomplishing its success if he is not too 
closely identified with all its operations. 

It appears to me, therefore, that if the Government of the United 
States is disposed to send coimnercial experts to foreign countries for 
the purpose of promoting the trade of the United States they could 
accomplish every good result if the}^ were attached to the consulate- 
general rather than to the legation in Switzerland, with authorization 
to spend their time in visiting every part of the country. The lega- 
tion could in many ways promote the success of their labors without 
itself directing the enterprise, which would not only bring it under 
the critical observation of the Federal Government of this country, 
but might possibly create the impression that the chief purpose of the 
legation was not to cultivate friendly relations between the two coun- 
tries, but to obtain the greatest amount of gain from the ^wiss people. 

David J. Hill. 



* Opinions of the Consul- general. 

ST. GALL. 

I have the honor to acknowledge the -receipt of Department's cir- 
cular entitled " Promotion of trade interests," directed to the Ameri- 
can diplomatic officers, on which I am instructed to give my views. 

I can not see in what manner the Department would benefit by 
transmitting its instructions through the diplomatic officers to the 
consuls, instead of through the consuls-general. In the general mer- 
cantile policy of the Government, as it tends to the increase of our 
trade, I think the consul-general, who is acquainted with the condition 
of his district, and therefore knows which consul is best qualified to 
make a report, is the officer who should transmit the directions of the 
Department. No doubt the diplomatic officer benefits by the consular 
reports, but as he receives, I suppose, the daily printed consular 
reports, which give him the local color and business of the country to 
which he is accredited, he has the information in a more concrete 
form and with less personal work than that entailed by receiving the 
reports directly from the consul. The annual report made by consuls, 
based as it is on statistics for the whole country, would simply be 
a repetition of information which the diplomatic officer already has. 

The advancement of trade, the sale of American products in Eu- 
rope, or the transplanting of European industries in America, arise 
from personal and natural causes. Thus, our tariff laws compelled 



138 PEOMOTION^ OF TRADE INTERESTS. 

many German industries, and industries from other lands, to move 
to America and to build and operate plants of more or less magnitude, 
while the increased sale of American raw products and manufactured 
articles was due, first, to the necessity of Europe, and second, to the 
active canvass of the consular corps, their reports to the Department, 
and letters in answer to firms requesting information on hundreds of 
different questions. It seems to me that the introduction and sale of 
articles of American produce is largelj^ a local matter, and that that 
local matter can best be attended to by the consular officer accredited 
to a particular district, that, in other words, a trained consul can do 
as well as a trained commercial attache. 

We of the consular corps can inform our merchants and manufac- 
turers on almost any question they may specify. We can go so far as 
to induce European merchants to make small sample orders, thus plac- 
ing the wedge in the door for greater orders. The subsequent steps 
to hold an increase of trade must be taken by the manufacturer and 
his agents. 

I can not see that the diplomatic officer could do more or has ever 
done more. The consular corps could be bettered by retaining men 
of long standing and ability, who would be well acquainted with the 
local conditions of trade in America, and the requirements of the 
people to whom they are accredited, and working in harmonv under 
a trained consul-general they would, to my mind, rej)resent a "body of 
men under perfect organization, rendering the best service to their 
country obtainable. Any information, local or general, that it is 
possible for a consul to give is given gladly, at the request of any dip- 
lomatic officer. 

The Department has done me the honor to ask my views on this sub- 
ject, and they are that the two corps would work better as separate 
institutions, both reporting to the one Department. 

Thomas Willing Peters, 

Consul-General. 
. St. Gall, August SO. WaJ^. 



Opinions of other Cons>ilar Ofjicers. 

BASEL. 

Department circular of August ^. transmitting the circular of 
July 29, '' Promotion of trade interests," addressed to diplomatic offi- 
cers, has been duh^ received. 

I have long been convinced that something might be well under- 
taken for the better coordination of consular reports on trade. The 
reports of several of my more eminent colleagues in Europe are cer- 
tainly of great value; but it frequently happens that the labor and 
time involved in their preparation have been employed by several 
consuls at the same time in covering substantially the same ground. 
If I am not mistaken, identical statistics of exports and imports have 
been several times repeated in the reports from a given country. 

It is especially this defect in the service of collecting commercial 
information that I should expect to see removed by the plan sug- 
gested. The diplomatic officer would, of course, assign to the clif- 



PROMOTION OF TRADE INTERESTS. 189 

ferent consuls the work which each is best fitted, by his situation or 
aptitude, to perform in the preparation of all reports except those 
having reference to matters in their several districts. 

I had thought that this supervision might be exercised by the con- 
suls-general, but the greater authority of the ministers would, no 
doubt, give more satisfactory results in this direction, as well as in the 
others mentioned in the circular. 

Geo. Gifford, Consul. 

Basel, Septemljcr /, 190. 4. 



BERNE. 



I have the honor to state in answer to the circular, '' Promotion of 
trade interests :'' 

1. That the difficulty upon the part of consular officers in obtaining 
information from the Swiss federal authorities is more fancied than 
real. Here in Berne they seem to distinguish between commercial 
and diplomatic matters, and we have no difficult}^ in obtaining any 
trade information we desire. We find the different federal depart- 
ments courteous and willing in their replies. 

2. The value of a revision of a consular report by the legation 
would depend on whether the personnel of the legation was literary or 
commercial. Granted that the members of the legation possessed 
sound business experience and the commercial instinct, the revision 
would be valuable. Otherwise, a report might be improved as a 
literary production, but hardly improved commercial^. 

'3. Where the consular officers are doing the work they can and 
should, a " commercial attache " would be like the " fifth wheel of a 
coach." It would seem that we have machinery enough, and all that 
is necessary' is to work it. 

Edward IIiggins, Consvl. 

Berne, Octohev 13, 1901^. ' .■ 4^ 



GENEVA. 



In reply to the circular directing an expression of views on the 
probable promotion of American trade interests abroad by the coo]^- 
eration to that end of diplomatic officers with consids, under the more 
immediate direction of the diplomatic officers, I have the honor to 
report that in the particular case of this consulate I am not of 
opinion that instances would arise, unless possibly in such rare cases 
as not to create a consideration, wherein the channels of information 
open to the consulate are not amply sufficient for the obtaining of 
such information as the consulate *is called upon to furnish. 

In the Republic and Canton of Geneva, the various bureaus of the 
Government respond readily to any requests from the consulate for 
information and also furnish pamphlets that may have been pre- 
pared on different subjects — such as adulteration of food, road build- 
ing, sanitary regulations, control of sale of food, public instruction, 
police regulations, statistics of population (floating and permanent), 
health statistics, general statistics, etc. — on request. 

It would therefore seem under special conditions prevailing here 



140 PROMOTIOT^ OF TRADE INTERESTS. 

that the instances wherein the legation would alone be able to act 
effectively would have to be of a purely diplomatic nature, and such 
Avould come into the exclusive hands of the legation from the com7 
mencement. 

It might further be observed that a difference in language — and, 
to a corollary extent, in the habits of the people — occasions definite 
differences in the demands in the markets of this, the French-speak- 
ing section of Switzerland, from those prevailing in other parts of 
the country where the German language is spoken ; so that informa- 
tion obtained at Berne, the capital, in a German- speaking section, 
would not always be applicable in Geneva, situated as it is in the 
French-speaking part of the country. 

As regards directions from the legation, there can be no doubt that 
practical benefit would be derived from the broader knowledge of a 
minister in touch with an entire country. „ 

Horace Lee Washington, Consul. 

Geneva, Septemter P, lOOIf. 



I^UCERNE. 



I have the honor to acknowledge the receipt of the Department's 
circular, together with the circular to the diplomatic officers, dated 
July 29, 1904, in regard to a plan for the coordination and improve- 
ment of existing facilities for the collection of commercial intelli- 
gence and the promotion of American trade interests abroad. The 
plan outlined by the Department would operate, in my opinion, to 
obtain a far more comprehensive report on the subject of trade con- 
ditions where the report covered the entire country under considera- 
tion. It is frequently noticed that a group of reports made by con- 
sular officers are often conflicting, either through errors of fact or 
judgment, and are in consequence misleading and ineffective to our 
manufacturers and exporters. 

Henry H. Morgan, Coiisul. 

Lucerne, September 17^ 190 1^. 



TURKEY. « 

Report from Minister Leishman. 

American Legation, 
Constantinople^ September ^7, 190 1^,. 
I have to acknowledge the receipi^^ of the Department's circular note 
of July 29, 1904, asking for certain information with a view of enlist- 
ing the services of the diplomatic officers abroad in the " Promotion 
of trade interests." 

The Department will always find me a cheerful and earnest sup- 
porter of any move toward the extension of American commerce, and 
I am quite of the opinion that very material assistance can be ren- 

« Including both Tnrkej^ in Europe and Turkey in Asia. 



PROMOTION OF TRADE INTERESTS. 141 

dered by diplomatic officers, especially in an extraterritorial country 
like Turkey. 

1. In answer to your inquiry as to whether it would be practicable 
for the minister to transmit inquiries concerning commercial matters 
to the several consulates, together with any suggestions that may ap- 
pear advantageous, and to revise the answers in the manner indicated 
in your circular note, I beg to say that I can see no good reason why 
this could not be done, provided that proper assistance be furnished 
the legation to enable it to conduct the business in an intelligent and 
proper manner. 

The question of avoiding friction with the consular corps is always 
a delicate matter, and in cases somewhat of a problem, so much so in 
an extraterritorial country like Turkey that all of the European 
powers find it desirable to place their consular officers in the Otto- 
man Empire under the immediate direction of the ambassador, and 
most of these have either a commercial attache or a special dragoman, 
who performs the same functions, and this man is directly attached 
to the embassy. 

The British Government pays its commercial attache here £1,000 
per annum, plus traveling expenses, etc., and he also looks after com- 
mercial interests in several of the Balkan States. 

A commercial attache could not be expected to exert any direct in- 
fluence upon trade, but a capable man could furnish the Department, 
legation, and consulates with information that would assist the sev- 
eral Departments very materially in the prosecution of pioneer work, 
which is most necessary to establish American commerce on a fair and 
iasting footing in Turkey, Avhich is a rich and practically a virgin 
field for American products. 

Although a beginning has been made and a fairly steady growth 
maintained, American trade in the Orient is practically in its in- 
fancy, and should be assisted, like other infant industries. American 
manufacturers bear an excellent reputation, and the fear of encroach- 
ment upon what has been heretofore the undisputed trade of Europe 
is undoubtedly the foundation for most of the jealousy and conse- 
quent intrigues on the part of our Continental neighbors. 

2. As the Turks are neither a commercial nor a manufacturing 
race, little or no attention is paid to the development of the natural 
resources of the country, and nothing in the shape of a commercial or 
industrial attache exists. 

3. Should the Government decide to put the prograaume described 
under question 1 into eifect, it would be necessary to make provision 
for a commercial attache and an extra secretary or clerk, as the large 
amount of business alreach^ devolving upon the legation keeps the 
present force very busih^ employed, long liours and frequent night 
work being the rule rather than the exception, so much so that I have 
frequently been tempted to beg the Department to appoint a third 
secretary to assist in keeping up the current work. 

There is another point which I respectfully beg leave to call to the 
Department's attention that is of vital importance in the promotion 
of American trade interests in the Orient, and that is the question of 
transportation. English boats can readily be chartered in America 
for direct shipments of full cargoes of heavy material, such as the 
order for 20,000 tons of rails which was secured last spring from the 
Ottoman Government for an American firm through the good offices 



142 PROMOTlOJSr OF TKADE INTERESTS. 

of the legation, but miscellaneous goods must be transshipped, gen- 
erally at LiA^erpool, Harve, Hamburg, or Marseilles, invoving delays 
^ald considerable extra expense, both of which operate very materially 
against American manufacturers. To overcome this serious obstacle 
10 the advancement of American interests, a direct line of steamships 
should be established between the United States and Turkey carry- 
ing the American flag, something that is never seen in these waters 
except upon an occasional yacht. I am quite of the opinion that a 
jnodern line of steamers ph'ing between New York and Constanti- 
nople would do wonders in assisting the development of American 
trade in the Orient and woidd in time become self-supporting, but 
for the first fifteen or twenty years, it would be necessar}' for the 
Government to grant a sufficient subsid}^ to warrant the undertaking. 
Xo better missionary work could be done here, and I request the 
department to incorporate such a recommendation when making its 
I'eport to Congress. ^ 

Joiix G. A. Letshman. 



Opinions of the Consul-general. 

CONSTANTINOPLE. 

The vice-consul-general at Constantinople asks me to reply to the 

Department's circular of August 4, calling for suggestions with the 
view of promoting our foreign trade. He also incloses for my infor- 
jnation, and to be forwarded to the Department, an answer to this 
circular from Consul Jewett, of Sivas. 

I full}^ indorse the following opinion of Consul Jewett : 

I think the phm a good one, provided the worlv of the diplomatic officers and 
consuls-general can be so divided and systemized as not to cause a conflict of 
authority or a division of responsibility that would lead to confusion and dimin- 
ish activity on the part of each branch of the service, and if the two can work 
together harmoniously, as they should. 

As to the legation being instructed to take an acti^^e part in further- 
ing our trade interests, I regard this as of the highest importance. 
For years I have been working for A^hat is now outlined in the 
De23artment's circular. The obstacles that have been met with in this 
matter in Turkey have not been the fault of the consuls-general or 
of our ministers so much as the petty jealousies and grudges between 
some of the native employees in the two offices. For example, to Jet 
a dragoman . from the consulate-general into the more or less sacred 
presence of a minister of the Porte might impair the exclusive 
authority and the prestige which the dragoman of the legation has 
so long enjo3'ed. Of course, the commercial matters ^hich my office 
is unable to accomplish could be taken up by the legation and they 
haA'e often been referred to it for that purpose, and when results 
were unsatisfactory it was, perhaps, through no fault of the lega- 
tion. The legation has been much overworked with diplomatic mat- 
ters and has not much time to do auA^thing to advance American 
trade. Last September, our minister, Mr. Leishman, authorized a 
dragoman from my office to go to the minister of commerce and to the 
palace to assist the Pennsylvania Steel Company in selling 20,000 
tons of rails to the Government for the Alecca railway. A great deal 



PROMOTION OF TRADE INTERESTS. 143. 

of time was consumed — moi'e, probably, than the dragoman of the 
legation could have given to it — but the contract was obtained. 

The great mass of our commercial work is made up of compara- 
tiA'ely small items, but the}^ are all-important, if we are to make 
progress in the Eastern markets, and the prompt and active coopera- 
tion and sympathy of the legation in such work would be of the very 
highest advantage. It should not be regarded as of less conse{(uence 
than diplomatic work. It is not so regarded by the representatives 
of other countries at Constantinople, and that is the principal reason 
why they are able to prevent the more rapid growth of our business. 
So far as I can judge, the obstacles put in the way of American com- 
merce in Turke}^ are suggested by our conomercial rivals, not by the 
Turkish officials. The Turks are not manufacturers, and are inclined 
to encourage commercial rivalry among other nations, unless they are 
influenced to do otherwise. 

As to the value of a commercial attache at Constantinople, I think 
such attache would be useful, if he were a man of business experience, 
with a taste for trade and interested in extending the commerce of liis 
country. The British ambassador at Constantinople has had, I 
belieA'e, no business training, but he is deeply interested in holding 
and extending the trade of Great Britain. To this end, nothing is 
beneath his notice. It may be that he and his first dragoman are 
doing the work which should be done by the commercial attache. I 
know they examined with great care the goods at our new American 
depot in Constantinople shortly after it was opened, and the ambas- 
sador has talked with me a number of times about our commercial 
work in Turkey, showing his entire familiarity with the subject. 

It is my opinion, therefore, that well-equipped commercial attaches 
at our embassies and legations, working in conjunction w^ith the con- 
sular body, would be very useful and that inefficient ones would be 
useless. Until Congress shall make provision for the employment 
of such attaches, the consul-general should be able to do that work 
with reasonable success. An experienced consul-general should have 
his office work so organized that he can be absent from it a part of the 
time without detriment to the service. Such time could be profitably 
employed in visiting the principal consuls under his supervision and 
advising and cooperating with them in planting and extending 
American commerce. I have found such visits extremely stimulating 
and helpful, and the consuls have generall}/^ shown an enthusiasm and 
a cooperation that have given us very satisfactory results. 

Chas. M. Dickinson, Consul-General. 
' BiNGHAMPTON. N. Y., Octolev 17, I9O4. * 



Opinions of other Consular Officers. 

AJLEXANDKETTA. 

A consular officer in Turkey would not be of much use to the lega- 
tion in the promotion of trade interests except to reply to direct ques- 
tions that may be sent him. Turkish statistics are so unreliable that 
but a general idea could be given. No census has been taken in this 
country for many years; in fact, no complete census was ever taken. 



144 PEOMOTION OF TRADE INTERESTS. 

No note is taken of transshipments. Goods coming from England, 
reshipped at Alexandria, are credited to Egypt. The exports from 
this port to the United States have greatly increased the last few 
years. The number of invoices at this office has grown from 28 in 
1900, to 79 in 1903. The rate of increase is about the same for 
Aleppo. But I am sorry to say that the imports from the United 
States have not increased, the lack of direct communication being the 
chief hindrance. 

Wm. Ross Davis, Consul. 
Alexandretta, October 3^ 190 Ij,. 



BEIRUT. 



Replying to instructions contained in circular " Promotion of trade 
interests," I would respectfully submit the following : 

In Turkej^, official commercial statistics are not only unreliable, but 
published from two to three years after the time to which they apply. 
Consuls in Turkey obtain their data with regard to the industries and 
commerce of the country from their own observations, from individ- 
ual merchants, from customs officials, from port companies, from for- 
eign chambers of commerce, if there are any, from members of impe- 
rial commissions established for the purpose of constructing railways, 
exploiting mines, etc. Consular officers in the Ottoman dominions 
enjoy a quasi-diplomatic status, and have a very free Ijiand, at least 
outside of Constantinople. In the latter place, our consul-general 
may be somewhat handicapped if the question concerns applications 
for franchises or bids for furnishing supplies for public undertak- 
ings, as such matters seem to be determined to some extent by consid- 
erations of international politics and of the personal interest of native 
officials. 

No doubt a clever American commercial attache of diplomatic 
rank accredited to Turkey, Greece, Bulgaria, Servia, and Roumania 
would prove exceedingly valuable to our manufacturers, exporters, 
and capitalists, especially along the line of keeping them informed of 
concessions contemplated and Government projects. He could also 
assist the consuls in their endeavors by furnishing them new§ from 
behind the curtains. I learn, for instance, that a concession for an 
electric plant in Damascus (light and street railway) has been ap- 
plied for ; also that the municipality of Damascus is planning a mod- 
ern system of waterworks. I follow these schemes through the 
mysteries of Damascus onl/ to discover that there is some hitch in 
Constantinople concerning their realization. I naturally wish to 
ascertain before sending my report home what the prospects are for 
the approval of these plans, but in the absence of sources of informa- 
tion in Constantinople to which I feel free to direct myself I lose 
track of the matter, and probabl}^ do not hear more of it until I read 
in the Vienna Neue Frie Presse or Berliner Tageblatt or London 
Standard (there are practically no newspapers in Turkey worthy of 
the name) that the contracts have been given to some enterprising 
German. I have had similar experiences also in connection with the 
construction of the Damascus-Mecca Railroad. In the latter case, 
however, because the Pennsylvania Steel Company had a representa- 
tive on hand in Constantinople, who spent weeks mingling .with the 



PROMOTION OF TRADE INTERESTS. 145 

proper officials, it fell to the lot of Americans to furnish thousands 
of tons of rails. Only two days ago I heard from the governor- 
general of the province of Damascus that these rails were giving 
excellent satisfaction, and that the local commission, in rej)orts to 
Constantinople, would so recommend them as to open up possibilities 
for further contracts with American manufacturers. 

In the Department circular, to which I now have the honor to 
reply, attention is most properly called to the necessity of close and 
active cooperation between diplomatic and consular officers in com- 
mercial efforts. This does not exist in Turkey in our case, as far as 
my experience goes. It would also seem essential that between con- 
sular officers and consuls-general, and between consuls mutually, there 
should be encouraged a stronger feeling of solidarity and more 
genuine fellowship. 

A striking instance of the gratifying results of such harmony and 
exchange of views and cooperation was brought to light, four or 
five 3^ears ago, in the establishment of direct steamship connections 
between New York and the Levant. Consul-General Dickinson then 
had all the American consuls in these parts solidly behind him, and 
a pull together brought about facilities which had been the subject 
of promiscuous consular Avriting for scores of years. " Even now," 
so reads a quotation from the Round Table of May 28, 1869, " there 
is before Congress a petition for a subsidy for a line of steamers 
between New York and Alexandria, which shall touch at Beirut." 

Mr. Peirce. Third Assistant Secretary of State, in his report upon 
a tour of consular inspection in Europe (1903) discusses various 
defects in our consular system which affect the consular morale and 
which naturally impair the usefulness of our consular officers in their 
capacities of advance scouts of commerce and of sentinels placed at 
foreign outposts to guard our national customs revenues. There are 
defects, serious and demoralizing ones, and in reporting upon the 
suggested appointment of commercial attaches, it will probably occur 
to many of our consuls that while such a departure no doubt would 
be highly beneficial to our foreign trade, as international competi- 
tion is ever growing fiercer, and new instruments should be thought 
of in time, it might also be worth considering whether the already 
existing means for the collection of commercial intelligence and for 
the promotion of our trade expansion could not be materially 
improved. 

Before closing this report, I would respectfully suggest that it 
would seem higlily important, in the interest of the public service, 
that inspection of consulates, as recently performed by the Third 
Assistant Secretary of State, be developed into a regular system. 

G. BiE Ravndal, Consul, 

Beirut, Octoler 29, 190. k. 



8IVAS. 



In reply to circular of August 1, asking for the expression of opin- 
ion upon a ]3roposed plan for the coordination and improvement of 
existing facilities for the collection of commercial intelligence and 

H. Doc. 245, 58-3 10 



146 PEOMOTION OF TKADE INTERESTS. 

the promotion of American trade interests abroad, I have the honor 
to say that I think the phm a good one, provided the work of the 
diplomatic officers and consuls-general can be so divided and system- 
atized as not to cause a conflict of authority or a division of respon- 
sibility that would lead to confusion and diminished activity on the 
part of each branch of the service, and if the two can work together 
harmoniously as they should. Perhaps, in this country, such'work 
would be of less value than in countries where there is a better organ- 
ized and more efficient central government. Turkish official statistics 
are months or years out of date, confused, and inaccurate. 

MiLO A. Jewett. Consul. 
SivAS, Septemher 19, 1901^. 



SMYKNA. 

In reply to circular, ** Promotion of Trade Interests.*' I have to 
say: As far as obtaining reliable trade information from chiefs of- 
departments in Turke}^ is concerned I am inclined to believe that the 
American minister at Constantinople will find it as difficult as it is 
for a consul to obtain similar information from the local officials to 
whom he is accredited. What commercial information the Turkish 
officials have is readily obtained, but it is not satisfactory. Eecords 
of the goods passing through the local custom-houses are kept, but 
not accurately. 

An officer whose duty it would be to attend solely to American com- 
mercial interests, attached either to the legation or consulate-general, 
would be a most useful official. He would be in a position to saA^e 
much annoyance and extended correspondence to both the minister 
and consul-general, and being frequently in touch with the chiefs of 
the customs department, could possibly devise means of smoothing 
the paths of commerce which are now so often obstructed by minor 
officials. 

I am inclined to think that the supervision of consular trade reports 
and the preparation of such trade reports by the minister himself 
would so materially add to the labors of our diplomatic officer as to 
interfere with his usefulness in other directions. If, however, par- 
ticular points of interest requiring the minister's attention could be 
singled out and presented to him by a commercial agent attached to 
his office, the result would be highlj?^ beneficial to American commerce. 

RuFus W. l^A.^'E^, Consul. 

Smyrna, September 26, 1901^. 



TKEBIZO]NrD. 



Replying to circular, " Promotion of Trade Interests," I have the 
honor to say that, basing my opinions upon my brief exj^eri^nce in 
the service as well as upon a practical experience for a number of 
years as promotor and manager for commercial enterprises (during 
which time I was brought in contact with many of our consuls). 
I feel that our commercial progress can be best advanced by a greater 
concentration of power in the hands of the consuls-general. The 



PEOMOTION OF TRADE INTERESTS. 147 

esprit de corps of the ser s'ice can be best preserved in that manner. 
In my opinion, the revising of consular reports, with '^ annotations 
indicating errors of fact or judgment," should be intrusted to the 
consuls-general. I am not in favor of having that work assigned 
to the diplomatic representatives or their subordinates. The multi- 
farious and exacting duties which are intrusted to our diplomatic 
representatives render it impossible for them to do proper justice 
to such an important matter. In many instances their lack of experi- 
ence in commercial affairs, as well as the uncertainty of their tenure 
of office, would impede rather than further the ends in view. 

With the view of having the work of the consular corps effective, 
the consuls-general should be men of practical business experience, 
and their subordinates likewise. In this progressive and practical 
age, a theorist or inexperienced man can not hope to advance the 
commercial progress of the nation he represents any more than he can 
succeed in our marts of commerce at home. In the successful prog- 
ress that has been made in capturing the inarkets of the world, some 
credit is, of course, due to the energy of the consular corps, but it 
is evident that it by no means represents the success that would have 
been achieved had our consuls-general and consuls been more gener- 
ally men of business experience. 

I am also of opinion that the appointment of commercial or indus- 
trial attaches, under the supervision of the consuls-general and acting 
in unison with them in the capitals of the various nations, would 
be of incalculable benefit, and that such attaches would prove a valu- 
able auxiliary in promoting and expanding our commerce. They 
should be recruited from the ranks of experienced business men, and 
their positions made permanent. The consuls-general should be 
empoAvered, whenever in their judgment they deemed it proper, to 
send them into the consular districts under their jurisdiction, to report 
on the work of the consuls, and, wherever possible, to render them 
assistance in their commercial work. I do not favor placing such a 
functionary under the jurisdiction of the diplomatic representatives. 

A British commercial organization has inaugurated a system of 
sending young men abroad to work under the guidance of the local 
consuls, that organization furnishing the salary" and necessary 
expenses of the persons referred to. Two and a half years ago, a 
young man was sent to this district by that organization. His mis- 
sion has proved a failure, and British trade has declined rather than 
increased during that period. This is due to the fact that he has had 
no practical commercial experience. A theorist can not make a 
favorable impression on a practical merchant. 

Germany and Itah^ have recently sent to this countr}^ commercial 
representatives to investigate and study the existing conditions and 
report on the best methods to be employed for increasing their com- 
merce. Their mission has been productive of beneficial results. 

The absence of a parcel-post system is ])erhaps one of the great- 
est barriers to our progress. Small trial orders and bulky samples 
can not be sent through our mails unless at great expense. Mer- 
chants are unwilling to purchase from illustrated catalogues, and 
where it was tried, in a few instances, I am sorry to say some mer- 
chants in America did not fulfill their obligations, and a want of 
confidence has thus been created. The European system of parcels 
post furnishes one of the greatest means for promoting their com- 



148 PROMOTION OF TRADE INTERESTS. 

merce. I will illustrate one instance: A small trial order recently 
sent to a New York house, amounting to $3.50, met with this reply: 
" The mail charges on the package would amount to $5.40, and the 
express charges $3." The charges for a similar package from 
London would be about 50 cents. 

Our manufacturers do not give proper attention to the various 
suggestions made in the consular reports. This perhaps may be due 
to a great extent to the greatness of our home market, as well as to 
want of confidence in the practical knowledge of the writers. Ameri- 
can manufacturers, in some instances, quote impracticable terms to 
intending purchasers, and thereby lose an opportunity to promote 
trade. Among numerous cases which have come under my notice, I 
quote one from a firm of manufacturers in New York City, who, in 
reply to a request for prices and terms addressed to them by a repu- 
table dealer in this city, say : 

Our terms are strictly cash in advance, and care must be taken to send suffi- 
cient money to cover the cost of the goods, prepay the postage on same, as well 
as the postage used in the correspondence. 

This arbitrary action lost a valuable customer. I am satisfied no 
European manufacturer would write such a letter. 

With confidence, unity of purpose, and a better understanding 
between our manufacturers and consuls, we can look forward with 
every hope to the time, wdiich can not be far distant, when our nation 
will lead the world in commercial activity and importance. 

Edward J. Sullivan, Consul. 

Trebizond, September J, lOOIf. 



NORTH AMERICA. 

CANADA. 

Opinions of Consuls -general. 

HAI^IFAX. 

Department circular, "' Promotion of trade interests,-' is not appli- 
cable to the Dominion of Canada, as there is no American ambassador 
or minister accredited to this country. I can see no objection on the 
part of consuls to submitting reports on special subjects to an ambas- 
sador or minister for amendments or suggestions, but I apprehend 
such officer would not desire to read all the reports consuls forward. 
I think they could add something of interest to such reports as might 
be submitted to them. 

The Canadian department of trade and commerce has " commercial 
agents " in Australia, New^ Zealand, South Africa, Tlie West India 
Islands, Norway and SAveden, Denmark, France, and the cities of 
London, Manchester, Leeds, and Birmingham, England. The cluties 
of these agents are similar to those performed by American consuls, 
and they receive $3,000 per annum, wdth an allowance for help, sta- 
tionery, rent, and incidentals. 

The Canadian Manufacturers' Association, feeling that the number 
of commercial agents did not cover sufficient territory, have supple- 



PROMOTION OF TRADE INTERESTS. 149 

mented the same b}^ the appointment of a number of " foreign 
agents " of their own, with similar duties, at Calcutta, Hongkong, 
Yokohama, Carlo, Cape Town, Buenos Ayres, Valparaiso, Kio de 
Janeiro, Melbourne, Sydney, Paris, Copenhagen, Amsterdam, Brus- 
sels, St. Petersburg, Glasgow, and Belfast. These agents receive but 
$50 a year and nothing for incidentals, and their reports are pub- 
lished in Industrial Canada, a monthly publication devoted to the 
interests of the Canadian Manufacturers' Association. 

The newspapers and business men's associations are zealously en- 
gaged in an effort to create a public sentiment in favor of purchasing- 
homemade goods, and many articles are marked " Made in Canada." 

The principal impediment in the way of increasing the trade of 
the United States w^ith Canada is the preferential tariff of 30 per 
cent in favor of England. But for that, there can be no reasonable 
doubt but the United States would command a larger per cent of the 
Canadian foreign trade. "V^liile we are their strongest competitors in 
business, our social relations with the authorities and people are ami- 
cable and cordial, and being near neighbors, we are allied by business 
interests, kindred ties, close market, satisfactory goods, excellent 
means of transportation, and a personal acquaintance with the lead- 
ing firms of exporters in their respective lines. Indeed, there is 
scarcely a prominent firm in Canada that has not some member of his 
family or near relative in business in the United States. The inter- 
course between the two countries is constantly increasing. In fact, 
Canada is becoming so Americanized that it is impossible to distin- 
guish a large proportion of Canadians from citizens of the United 
States. 

W. R. Hollo WAY, Consid-General. 

Halifax, August 20. 1901^. 



MONTKEAI.. 



Responding to inquiries in circular, " Promotion of trade interests," 
this consulate-general respectfully submits the following : 

It is thought that the most effective method of securing informa- 
tion on the points desired would be to submit the interrogatories to 
the consul-general, with directions to secure replies from the officials 
having knowledge to impart, the same to be returned to the Depart- 
ment through the consul-general, with such comment as that official 
may present, to be utilized b}^ the Department, in whole or in part, as 
may be deemed best. It occurs to this consulate-general that the 
reports can be made to cover more details and be of greater utility 
than a more direct communication without such intervention. 

The foreign consular service in the Dominion of Canada has no 
attaches assigned to the duty of furnishing commercial reports espe- 
cially, such reports being so far furnished by the consuls or vice- 
consuls from the respective countries represented. 

It is not believed that an attache to the American consular service 
would fill the requirements suggested as to the Dominion service so 
well as recognized consular officers by personal investigation, or per- 
haps, in a special case, b}^ a special representative under the direction 
of the Department. By keeping in touch with the Department and 
the consular service within his jurisdiction, the consul-general would 



150 PEOMOTION OF TRADE INTERESTS. 

be enabled to anticipate many requirements. In some instances 
there might be a necessity for an appropriation for extra consular 
work to cover the expenses of personal visits or examinations in 
obtaining information while absent from the post of duty. 

Montreal is the commercial center of the Dominion and the metrop- 
olis of Canada, having a population of 300,000, or. in other words, 
about four times that of any other city in the Dominion. Here are 
located the head offices of the two principal trunk lines of Canada, 
the head offices of the banks, insurance companies, importers and 
exporters, manufacturers, etc. The location of the harbor commis- 
sioners, navigation of St. Lawrence Eiver. pilotage, and canal service 
being here, it is assumed that more accurate and reliable facilities for 
securing information can be obtained at Montreal than at other 
points. 

The opportunities in the commercial area of Canada are almost 
limitless, and assiduous cultivation of them can but bring most favor- 
able results. A vast country, rapidly filling with intelligent people, 
up-to-date in all that tends to successful empire, and backed by inflow- 
ing capital and enterprise, seems to open up the grandest possibilities 
to its American neighbors, who are Avelcomecl with open arms. 

The increase of American interests in the establishment of foun- 
dries, factories, etc., and the multiplying of products of general util- 
ity, is rapid, and every month needs noting as to the results of vary- 
ing conditions and influences upon commercial enterprise in order to 
point out Avherein the field may be cultivated most profitably for the 
benefit of our producers. This is not only true as to Montreal, but 
all along the line, from the Atlantic to the Pacific, in the Dominion 
of Canada, whose purchasing power is constantly growing. 

It should be considered that the facilities for Americans to visit 
the, different large cities of Canada are so superior that it is easy for 
them to travel through the Dominion with the object of placing their 
goods on the market. 

Canada has no consular service, but it is entitled to the services of 
British consuls the whole world over ; it is claimed, however, in many 
quarters that they are of but little service to Canada. In Canada 
there are nearly 500 consuls, vice-consuls, and commercial agents rep- 
resenting foreign countries. Out of that number 188 are in the 
American service, and it has been pointed out by Canadian members 
that the American consular service in Canada is of great benefit to 
the United jStates in studying commerce and pointing out additional 
openings for trade to the American people. 

At the fifth congress of the chambers of commerce of the British 
Empire, held in Montreal in August, 1903, the following resolutions 
were passed : 

That in the opinion of this congress it is iirgentlj' neoessiiiy. in the interests of 
the commerce of the British Empire — 

First. That His Majesty's Government shonid resolutely maintain and extend 
our connnercial treatj' rights. 

Second. That the consular service should be reorganized and strengthened on 
lines calculated to make it more effective for the promotion of the trade of the 
British Empire. 

Copy of this resolution to be sent to the British colonies. 

Canada has commercial agents who are under the department of 
trade and commerce, and that department invites correspondence 
from Canadian exporters or importers upon all matters pertaining to 



PROMOTION OF TRADE INTERESTS. . 151 

trade and will cause special inquiries to be made by the commercial 
agents into any subject of general interest when so desired. It is 
also suggested that the Canadian commercial agents should be kept 
supplied Avith catalogues, price lists, discount rates, etc., and thq 
names and addresses of trade representatives by Canadian exporters. 

The Canadian commercial agents are stationed at the following 
places: At Sydney, Australia, for New South Wales, Queensland, 
and Xew Zealand ; at Melbourne, Australia, for Victoria, South Aus- 
tralia, Western Australia, and Tasmania; at Cape Town, Cape 
Colony, for South Africa; at Birmingham, England, for Birming- 
ham ; at Leeds, England, for Leeds and Hull ; at Manchester, Eng- 
land, for Manchester; at Bristol, England, for Bristol; at Paris, 
France, for Paris; at Yokohama, Japan, for Japan; at Kingston, 
Jamaica, for Jamaica ; at St. John, Antigua, for Antigua, Mont- 
serrat, and Dominica; at St. Kitts, for St. Kitts, Nevis, and Virgin 
Islands; at Port of Spain, Trinidad, for Trinidad and Tobago; at 
Christiania, Norway, for Norway, Sweden, and Denmark. 

The department of trade and commerce of Canada publishes 
weeklj^ reports containing reports of commercial agents and trade 
inquiries. 

In addition to the foregoing, tlie Canadian immigration agents are 
directed to answer inquiries relative to trade matters, and their serv- 
ices are available in furthering the interests of Canadian trade. 
There are 5 located in England, 1 in Scotland, 2 in Ireland, 1 in Bel- 
gium, 1 in Wales, and 1 in France. 

It will be noticed that there are no Canadian commercial agents 
for the United States. 

A. W. Edwards, Consul- General. 

Montreal, Septemher 17^ 1901^. 



OTTAWA. 



In response to circular of August 4, requesting an expression of my 
views concerning the desirability of cooperation by the diplomatic 
officers with the consular service in the collection of coiuinereial iiitel- 
ligence and the promotion of trade interests abroad, I have the honor 
to state that, while I assume that in many countries such cooperation 
would be exceedingly valuable, it does not seem to me that in a self- 
governing dependency like Canada any advantage could be obtained 
by the proposed method. 

The Canadian departments have always been most courteous in 
granting my requests for commercial information, and I have never 
found any disposition on the part of Canadian officials to withhold 
intelligence which thej^ would have been willing to give to diplomatic 
officers. 

I am inclined, moreover, to believe that Canadian national senti- 
ment would be better pleased by direct requests from a consul-general 
resident at Ottawa for commercial information and such matters as 
come distinctively within consular jurisdiction, than to have such 
requests forwarded through so circuitous a channel as the London 
embassy. 

John G. Foster, Consul- General. 

Ottawa, August IS., 190 h. 



152 . PROMOTION OF TRADE II^TEEESTS. 

Opinions of other Consular Officers. 
BRITISH COLUMBIA. 

VANCOUVER. 

I have the honor to acknowledge the receipt of the circular, " Pro- 
motion of trade interests." 

The Dominion of Canada is a self-governing colony of the British 
Empire, and the information required to enable our consul to make 
reports of the greatest value is generally to be secured from the 
Dominion government at Ottawa. I do not know what difficulties 
the American consul-general at Ottawa may meet in his endeavors to 
secure information, but assume that the American ambassador at 
London might give the consul-general most valuable assistance. 

The seat of government of this province is at Victoria. I do not 
know whether or not our consul at that port encounters obstacles in 
his efforts to procure information of value to the merchants and 
manufacturers of the United States. 

As this consular district is remote from both capitals, T have not 
sought for information that can only be derived from official sources, 
beyond such as the local officials can give. I have always found the 
local officers of both the dominion and provincial governments willing 
to give -me some information, but in matters of much importance I 
am always told that the informat;ion can only be given by the chief 
officers at the seat of government. 

As you have asked me to express my views regarding the plan for 
the coordination and improvement of existing facilities for the col- 
lection of commercial intelligence, I can only say that I believe the 
active cooperation of the diplomatic officers with tlxe consuls in this 
work would result in a very substantial increase in the value of the 
reports. ' 

L. Edwin Dudley, Consul. 

Vancouver, August 23^ lOOJf. 



VICTORIA. 



I have the honor, referring to Department circular, " Promotion of 
trade interests," to report as follows: 

It would be entirely practicable for your consul at Victoria to 
transmit instructions to different consular officers in western Canada, 
or any orders received from the Department of State, and to note in 
the dispatch transmitting same such suggestions as might seem 
appropriate or necessary from information secured from the pro- 
vincial officers who are necessarily resident in Victoria. If consular 
officers are directed to transmit answers to such instructions through 
this consulate, the most painstaking care would be taken (with per- 
mission and direction of the Department) to edit them so ag to 
eliminate known errors of fact or judgment. Of course, I should 
understand, as suggested, that an}?^ annotations would be subject to 
the approval of the Department, and the original as well as edited 
report would be transmitted for the Department's consideration. 

There are no dominion officers here in Victoria who have any 



PROMOTION OF TRADE INTERESTS. 153 

diplomatic status or an}^ connection with the consular service of 
their own or any other country. Connected with the provincial gov- 
ernment there are in the various departments of finance, public works, 
mining, etc.. officers who make specialties of statistics. Your consul 
has always cultivated friendly relations with them, and has fre- 
quently received advance copies of statistics, estimates, projected 
plans, etc., which information has as promptly as possible been for- 
warded to the Department. 

As to whether any additional assistance would be required at this 
consulate to carry out the suggestion contained in question 1, that 
would naturally depend upon the number of consular officers desig- 
nated to report to this consulate and the number of communications 
made. In any event, not more than one additional clerk would be 
necessary. 

I would respectfully suggest that permission be given the consul 
to visit portions of the province where projects of importance are 
being started or in progress, and important special information could 
be secured at first hands, and that he be allowed necessary expenses 
incurred in so doing. If this were insured, more reliable fresh data 
could frequently be obtained. Your consul at Victoria has always 
been ready to assist any consular officer in obtaining information 
from the provincial departments. 

As the provincial capital, the headquarters of the British Pacific 
squadron, and the British Columbia sealing fleet, Victoria must 
necessarily continue to be of the first importance in regard to the 
varied interests of Western Canada. 

Abraham E. Smith, Consul, 

Victoria, October 26, lOOJf. 



YUKON KEGION. 



Replying to circular of August 4, I desire to signify my apprecia- 
tion of the method proposed by the Department for the promotion of 
American trade interests abroad, and to facilitate the efforts of con- 
sular officers to keep American manufacturers and exporters fully 
advised of all matters likely to aid them in increasing American 
commerce. 

Our embassies and legations, having at their disposal all Govern- 
ment publications and reports and all trade and commercial journals, 
besides being likely to see the trade notes appearing in the press 
of the capitals, are certainly in a position to be fully informed on all 
matters touching upon manufactures and commerce, and I judge, 
therefore, that should consular reports, whether emanating from 
consuls directly or under instructions from the Department, be sent 
through our diplomatic officers, they could make most valuable sug- 
gestions for a supplementary report from the consul or greatly add 
to the value of the original one by giving, from Department publi- 
cations in their possession, the result of Government investigation 
of the same subject. 

During the time I haA^e been stationed in Canada, I have always 
received every assistance from the authorities in my endeavor to 
obtain trade information, and the several ministries have been good 



154 PROMOTION OF TRADE INTERESTS. 

enough to send me, upon my application, all reports, publications, 
ajnd maps issued by their departments. 

liEo Bergholz, Consul, 
Dawson, Yukon Territory. Septemher 16. 1901. 



jvew BRu:rsrswiCK. 

MONCTON. 

Replying to circular of the 4th instant, I beg to sa}^ that I have 
always received every courtesy and assistance in any applications I 
have made to Canadian officials in reference to matters of trade or 
industry, and have tried, from time to time, to report such as seemed 
to me might be of use to business men of the United States. 

At the same time, I have had a considerable number of inquiries 
from United States manufacturers and others in reference to matters 
of which I had no knowledge or means of getting any, by reason of 
the fact that no business in the particular line about which inquiries 
were made was carried on in or near this consular district. On the 
other hand, when circumstances have arisen in this country which 
it seemed might affect United States business interests, I have fre- 
quently hesitated about reporting them lest other consuls in closer 
touch with the circumstances should have done so. 

There is no doubt, I think, that, witli a properly organized arrange- 
ment, a larger business could be done between this country and the 
United States, and that business would be helped by the appointment 
of a " commercial attache," or by the establishment of a commecial 
information bureau for each of the provinces of the Dominion, to 
whom the different consuls could report matters of interest arising 
in their several districts. This bureau could then annotate and con- 
dense these reports, and for^'^ard such portions thereof as were 
deemed of importance in consolidated form to the Department. 
Then, too, if the central bureau or agenc}'' was established, as sug- 
gested, all general inquiries could be sent there, and the agent-general 
could get required information from such of the subordinate officials 
as might be in possession of it, and this he could supplement with his 
general knowledge of the Province and the reports from time to time 
received by him. 

GuSTAVE Bedtelspacher, C ommevciol Agent. 

MoNCTON, New Brunswick, August 16. I9O4. 



ST. JOHN. 

In reply to your circular of August 4, asking for an expression of 
views of consuls upon the subject of promotion of trade interests in 
their districts, I have the honor to state that, inasmuch as there are 
no diplomatic officers of the United States located in Canada, there 
could be no conference with such ; but there might be, with profit, a 
conference of the different consular officers in the Maritinie prov- 
inces to formulate plans for the promotion of our trade interests 
in that section of Canada. The trade statistics of Canada are for- 



PEOMOTION OF TRADE INTERESTS. 155 

warded to the office of the commissioner of customs at Ottawa (and 
it is impossible to secure such from the different collectors of cus- 
toms in these Provinces), and can be obtained only through the 
consul-general at the Dominion capital. We are, therefore, restricted 
in securing such valuable information within time to be of any im- 
mediate practical benefit to the manufacturers of the United States. 
If the Department considers the siiggestions herein practicable and 
the consul-general at Halifax were instructed to call such a confer- 
ence there would probably be considerable benefit derived therefrom. 

Ira B. Myers. Consvh 



St. John, New Brunswick, Sejytember 19, 190. 



ST. STEPHEN. 



In reply to Department circular of August 4, I have the honor to 
inform you that I regret not to be able to offer suggestions for the 
improvement of existing facilities for obtaining commercial intelli- 
gence or the promotion of American trade in this consular district. 

While it is true that we depend upon the heads of departments for 
much of our information, this office is in such good standing with the 
officials here that no difficulty has been experienced in obtaining 
statistics wanted. Although aware that this? source of information 
might be closed to us at any time, the possibility is very remote. 
Should it occur, however, I have not the slightest doubt but a way 
would be found to get possession of all that we should desire. At the 
present time, I confess my inability to suggest any other plan. 

The situation of this consulate, its whole length bordering on the 
United States, and the fact that the business interests here are in such 
close touch with American manufacturers and producers and are 
satisfied with trade conditions as to credits, quality of goods, packing, 
etc., make it difficult to conceive of any way to materially increase 
American trade by other means than those now in force. 

Charles A. McCullough, Consul. 

St. Stephen, New Brunswick, August 31^ 190 Jf. 



l^OYA SCOTIA. 

SYDNEY. 

In compliance wuth circular of August -i, I have the honor to report 
as follows: 

It would greatly facilitate the work of this consulate if instruc- 
tions were received specifying any particular business or class of 
manufactures it was desired 'to obtain information in regard to, with 
suggestions from the consu.l-general as to the mode to be used in pro- 
curing such in formation as seems best adapted to each particular 
consulate under his jurisdiction. 

Pleretofore this consulate has maintained the most cordial relations 
with the merchants engaged in all classes of trade, and has, as the 
large catalogues of manufacturers, wholesale dealers, and commission 



156 PROMOTION OF TRADE INTERESTS. 

brokers have been received, laid them before the merchants for their 
inspection and consideration, and informed merchants and others 
interested that such catalo£>;nes were at their disposal at any time for 
consultation in the office of the consulate. 

The same cordial relations have also been maintained with the 
offiecers of the coal, iron, and steel companies located in this consulate 
jurisdiction, and, on application being made, they have kindly fur- 
nished statistical information for use in the report on " Commerce 
and industries " submitted by me each year. 

The same courtesy has also been extended by the commissioner of 
customs at Ottawa in regard to the dutiable and free imports and 
exports into the ports of Sydney and North vSydney (they forming 
separate customs collection districts), for each fiscal year, by specified 
classes of goods from the United States, Great Britain, and other 
countries.^ this consulate reimbursing the gentleman detailed by the 
commissioner for the labor involved in making up the statistics from 
the files at Ottawa. 

As is well knoAvn to the Department of State, the section of Nova 
vScotia in which this consulate and its agencies are located is not 
largely populated, except in and around the coal mining districts, 
and at Sydnev, where the Dominion Iron and Steel Company is 
located. Neither is it a manufacturing center for any class of goods 
used generally by the inhabitants. I am pleased to state, however, 
that in the last several years there has been quite a large increase in 
the quantity of American goods Vjrought into this immediate vicinity, 
owing in a measure, I think, to the merchants having had brought to 
their attention through this consulate, as well as by their receiving 
direct from the manufacturers and others, catalogues and prices of 
various classes of American-made goods. The fact remains, on the 
other hand, that this section of Canada has a large corps of ener- 
getic commercial salesmen constantly on the ground, representing 
British manufacturers in all classes of goods: also carrying large 
lines of samples, and with the differential tariff in favor of Great 
Britain, and with long credits, they control a large portion of the 
trade and are close competitors with Canadian manufacturers, mak- 
ing it exceedingly difficult for American goods to be placed on this 
market, unless they possess great superiority in style, quality, and 
price. 

This consulate would Avarmly welcome any suggestions or instruc- 
tions whereby it might more effectively promote the interests of 
American manufacturers for the introduction of their goods or 
Avares into this market. 

George N. West, Consul. 

Sydney, Nova Scotia, Avgvst 16. 190 J^. 



WINDSOR. 



In reply to the circular " Promotion of trade interests," I beg leave 
to say that, as there are no American diplomatic officers in Canada, 
there could be no conference of American consuls with them as sug- 
gested in the circular. But there are over forty odd American con- 
suls in Canada, and, barring a few French consulates, the districts are 



PEOMOTION OF TRADE INTERESTS. 157 

all English speaking, with like tastes, culture, and habits as the 
American people — indeed, more like Americans than the English — 
and yet these consuls are all strangers to each other, seldom meet, and 
scarcely ever write to one another, except briefly on official business. 
Nothing would be more valuable to the consular service, nothing 
would do more to promote trade interests with Canada, than the per- 
mission to the American consuls in Canada to form associations and 
meetings for the discussion of consular business pertaining to their 
respective consulates. Such associations might be authorized, with 
simple rules and regulations, under the jurisdiction of a consul- 
general, perhapsj and thus obtain for the Department the combined 
judgment of the whole body of consuls instead of the conflicting 
reports and separate findings of individual consuls. 

The diplomatic circular inclosed v\dth the instruction of August 4 
well states an important truth when it sa^^s " that the machinery for 
collecting information as to business conditions in foreign countries 
should be made as efficient and automatic as the means will allow.'' 
This valuable suggestion, as well as many others contained in the cir- 
cular, could be better considered by a meeting or convention of Amer- 
ican consuls in Canada than by each consul in his office. Even a con- 
ference of two consuls alone on Department questions would pay both 
the consuls and the Department. At least, the Department might 
allow the consuls of the maritime provinces to effect an organization 
or association, under the direction and control of the consul-general 
at Halifax, for the discussion of consular duties, laws, and regula- 
tions and ail matters pertinent to the office of consul. 

Joseph T. Hoke. Consul. 

Windsor, Nova Scotia, Se/ptemljer 22^ WOJi. 



ONTARIO. 

CORNWAXL. 

I have the honor to ac]?:nowledge the receipt of circular " Promo- 
tion of trade interests.'' In answer to question No. 1, I would state 
that it would be practicable to transmit to consular officers instruc- 
tions from the Department of State. These reports could be revised 
and suggestions made as to eliminating errors, etc. As to question 
No. 2, there is perfect harmony with the Dominion officials in this 
district, and they cheerfully give information. As to question 3. 
there is no need of assistance at present. 

John E. Hamilton, Commercial Agent. 

Cornwall, Ontario, Octoher Tl\ 190 J^. 



LONDON. 



Replying to Department circular of date August 4, relative to pro- 
motion of trade interests, in which an expression of views is solicited 
from the consular officers, I beg to state that I am unable to see 
wherein our diplomatic representative in Great Britain would be of 



158 PROMOTION OF TRADE INTERESTS. 

much service in promoting our trade interests with Canada. I can 
readily see where he might be of great service in the mother country, 
but the independence of the British colonies and their trade relations 
with the mother country arising from the preferential tariff rather 
isolate them from any direct influence which our diplomatic repre- 
sentative might have with their ministerial departments. Besides, 
our nearness to the Dominion and our friendly intercourse Avith its 
people, resulting in the wide dissemination of trade intelligence, 
leave but a sinall field in which to exert any extraordinary influence 
in behalf of further trade extension. 

True, we are now deprived of what was formerly accorded us, viz, 
the latest statistical information from local customs officers as to 
exports and imports, but this can be obtained, I understand, at the 
capital upon application to the department of customs. With this 
exception, consular officers are accorded the fullest information nec- 
essary to enable them to set forth clearly and fully the trade condi- 
tions of their respective consulates. 

Were I allowed to make a suggestion, I would say that a commerical 
agent stationed at the capital might be of great benefit to our manu- 
facturers and exporters, acting as an aid to the consul-general, with 
power to call for such special information from consular officers as in 
his opinion might be important, from time to time, to our interests. 

Henky S. Culat:e, Consul. 

London, Ontario, September 16^ WOIf. 



OKLLLIA. 



Replying to circular, " Promotion of trade interests," on which an 
expression of views is requested, the following is respectfully sub- 
mitted : 

Undoubtedly the officers of the diplomatic service would be able to 
procure reliable and authentic official information in less time than 
the average consular officer in most instances. It would, in my judg- 
ment, be a distinct advantage to the consular service to have the active 
cooperation of the diplomatic corps. A consul being unable to pro- 
cure authentic information through his own efforts, could then rely 
upon the assistance of officials better able to procure information first 
hand. 

In Canada, from my own experience, this is not so applicable. 
Information sought has been readily obtained through the courtesy 
of local officials or the cooperation of the consul-general at Ottawa. 
The establishment of direct cooperative communication between the 
diplomatic corps and the members of the consular service would, 
however, tend to remove any difficulties and uncertainties which 
might occur in procuring official information and prevent the appear- 
ance of any misstatements of any considerable consequence. 

My personal experience has been most gratifying with departiT;ients 
and officials. Information sought in most instances has been readily 
accessible, and in no instance have I met with anything but consider- 
ate and courteous treatment. So that in Canada, through the me- 
dium of personal effort or the assistance of the consul-general, reli- 
able information is easily obtainable. Generally speaking, the sug- 



PEOMOTION OF TRADE INTERESTS. 159 

gestioiis outlined in the circular would in my opinion add to the 
efficiency of the service. 

E. A. Wakefield, Consul. 
Orillia. Ontario, September i, 190 Ji. 



TORONTO. 



In reply to circular, " Promotion of trade interests,'' I have to state 
that while the suggestions contained iii the circular have reference 
directly only to countries where both diplomatic and consular officers 
are stationed, and are not applicable to the Dominion of Canada, 
where the consular service alone is represented, my judgment is that 
the cooperation of diplomatic officers, along the lines indicated in the 
circular, might be of material assistance to consular officers, particu- 
larly in the matter of statistical and other information, which, in 
many cases, can best be obtained from high official sources to which 
the average consul does not readily have access. 

The transmission of inquiries through diplomatic officers to con- 
sular officers, and, in turn, a like transmission of their replies, would 
unquestionably serve the purpose of imparting information, each to 
the other, and, in my opinion, would result in a cooperation that would 
greatly facilitate the means of obtaining information valuable to the 
importer and exporter, and in consequence prove of distinct benefit 
to American trade and commerce. 

E. N. GuNSAULus, Consul. 

Toronto, Ontario, Octoter IJf. 190A. 



QUEBEC. 

STA^'BKIDGE. 

With reference to the circular, ^' Promotion of trade interests," I 
understand the object to be the combining of the diplomatic and con- 
sular services into one alert and intelligent body, studying the Avorld's 
commerce and looking for commercial opportunities in each countrj', 
and reporting the information collected to the Department of State 
for the benefit of our people. It is my opinion that the aid of the dip- 
lomatic corps w^puld prove a powerful factor in efforts to extend our 
commerce. With a combination such as that proposed, I can see no 
reason why our manufacturers and exporters should not more than 
double their trade abroad. 

Diplomatic cooperation in Canada, how^ever, is not required. Such 
information as the consuls desire for use in their reports can always 
be secured directly from the departments at Ottawa without the inter- 
vention of a diplomatic officer or the consul-general. The Canadian 
officials are ever ready and willing to grant the least request. Closer 
relations should exist between the consular officers of Canada with 
the consuls-general at Montreal, Halifax, and Ottawa, for the promo- 
tion of trade between the two countries, and it might be advisable for 
the consuls-general to make suggestions to the consular officers sub- 
ordinate to them and revise their reports. The consuls-general arc 



160 PEOMOTIOIN^ OF TEADE INTERESTS. 

in a better position to cooperate with iis than our ambassador or his 
secretaries at London. Being located in tliis country and stationed 
in the most important cities, they can, as a rule, detect the deficiences 
or mistakes in our reports more readily than officials at a distance. 
According to their judgment, the}^ could also eliminate such passages 
in our reports as might give offense or cause embarrassment between 
the two countries. 

There is at present no cooperation between the British diplomatic 
corps and the Canadian commercial agents abroad. Canada's com- 
mercial agents have no status in international law, and are therefore 
ignored b}^ foreign States. Their number, it is claimed, is too small ; 
their reports are not sufficiently circulated, and in some cases, their 
qualifications are not adequate. The Canadians assert that the con- 
sular service should precede the granting of the right of treaty 
making, a subject which has been discussed recently. Plere is what is 
proposed for the extension of Canadian foreign trade: First. That 
an official paper be published setting forth tariff changes, movements 
in foreign markets, foreign commercial legislation, port and harbgr 
regulations, etc. Second. That an offiice be established in Ottawa 
where tariff's, circulars, items of commerce, neAvs, etc., can be referred 
to by the public, who may inspect and copy. Third. That changes 
in foreign tariff's be made known more rapidly than heretofore and 
that projected changes be prom^^th^ reported. Fourth. That trade 
reports appear more frequently and regularly and that copies of them 
be sent to trade journals. Fifth. That consular reports give the 
fullest details of industrial conditions. Sixth. That samples of 
goods be sent home with the reports. Seventh. That consuls report 
on what other means could be adopted to push their country's trade. 
Eighth. That consuls be allowed to pay for early statistical informa- 
tion. Ninth. That sample and specimen rooms be attached to the 
principal consulates abroad where various classes of Canadian goods 
may be kept in view. Tenth. That commercial museums of foreign 
manufactured goods and products be established in well-chosen 
centers in Canada, and that exhibitions of Canadian goods be opened 
at foreign ports or sent in vessels from port to port. Eleventh. That 
consular officers abroad use their best efforts to place British subjects 
on a not less favorable footing than foreigners in search of conces- 
sions or other commercial enterprises and recommmend trustworthy 
lawyers and accountants. Twelfth. That any such enterprise be 
reported at once. Thirteenth. That consuls assist in recovering 
debts. Fourteenth. That consuls report on the solvency of foreign 
business houses and how far credit may be safely given. Fifteenth. 
That His Majesty's consuls act as quasi-public prosecutors in cases 
of trade infringments. Sixteenth. That consuls be chosen from 
among men possessing commercial qualifications and technical 
knowledge. Seventeenth. That consuls home on leave shall visit 
centers of Canadian manufacture and acquire technical knowledge. 
Eighteenth. That the names and acldresscb of the consuls and their 
office hours be made public. Nineteeenth. That Canadian commer- 
cial attaches be appointed to embassies and legations. Tw^entieth. 
That the trade and commerce department be assisted by a council to 
be chosen from, the chamber of commerce. 

I have suggested, for reasons already mentioned, the employment 
of the consuls-general to cooperate with consuls in making reports to 



PROMOTION OF TRADE INTERESTS. 161 

the Department in lieu of the diplomatic officers in London ; further, 
that consular officers be allowed to pay for early statistical informa- 
tion, and, should commercial attaches be employed, that they be 
placed in large cities and be in charge of sample and specimen rooms, 
where various classes of American goods may be put on view. 

Felix S. S. Johnson, C ommeTcial Agent. 
Stanbridge, Quebec, Septemfjer 26^ 1901^. 



THREE RIVERS. 

In reply to circular of August 4, regarding plan for the advance- 
ment of American trade interests, I would say that, in view of the fact 
that the imports from America into Canada are constantly on the in- 
crease, and that the contemplated railway construction, on a large 
scale, is sure to create a demand for manufactured articles, especially 
those made of iron and steel, an organized system would do much to 
advance the trade interests of America. I think that, for this country, 
if a bureau, under the direction of the counsul-general, was equipped 
at Ottawa for such a purpose, it could there secure information that 
might be required along these lines. Tlie other consuls throughout 
the Dominion would cooperate with the consul-general. 

The importations into this district come through the custom-bouse 
located here, and as our relations with the Government officials 
located in Three Rivers are friendly, we could at any time obtain 
information or statistics that might be required for trade purposes. 

As the population and commercial needs of Canada are increasing 
rapidly, some organized plan should be adopted at once. 

W. W. Br AM AN, Vice Consul. 

Three Ki\t:rs, Quebec, September 10^ 1901. 



MEXICO. 

Report from Ambassador Clayton. 

American Embassy, 

City of Mexico., September ^, 190 4. 

I have the honor to acknowledge the receipt of the Department's 
circular instruction of July 29 last, relative to the promotion of trade 
interests. 

Before attempting to answer the three interrogatories therein pro- 
pounded, I shall avail myself of the invitation of the Department to 
offer any suggestions that may seem to further the coordination and 
improvement of existing facilities for the collection of commercial 
intelligence. The views that I am about to express originate from 
my standpoint here, and are based upon an experience of over seven 
years in this Republic. 

I believe that diplomatic representatives should be required by the 
Department to make all consistent and efficient efforts with the 
Government to which they are accredited, for the procurement of 

H. Doc. 245, 58-3 11 



162 PROMOTION OF TRADE INTERESTS. 

all proper information of a commercial character which consular 
officers may, from time to time, request; that, where the diplomatic 
representative entertains doubts as to the propriety of such requests, 
it should then be his duty in each case to report the facts to the De- 
partment for instruction. 

Upon the other hand, I believe that consular officers should be 
required, upon the request of the diplomatic representative, to furnish 
him, promptly and efficiently, all information concerning local occur- 
rences which might be the subject of diplomatic correspondence with 
the Government to which he is accredited; and, that where occur- 
rences come to the knowledge of consular officers which, in their 
judgment, might require diplomatic action, they should be required, 
upon their own initiative, to report the facts connected therewith to 
such representative. 

With the exception of the cooperation thus outlined, I believe that 
each branch of the service should remain absolutely separate and 
independent of the other. Upon the principle that " too many cooks 
spoil the broth " and the consideration that the efficienc}" of public 
officers is greatly stimulated by their desire to secure the approbation 
of their Government and the commendation of their countrymen, I 
believe that the officers of each branch of the service should be entitled 
to full credit for meritorious work without it being divided in the 
least with the other branch. Hence, I doubt the propriety of the 
proposed diplomatic revision referred to in interrogatory No. 1. 

It is my opinion that the consular service in Mexico w^ould be much 
improved if all of the consular officers were under the general supervi- 
sion of one consular officer, designated as consul-general, and that to 
him should be delegated the revisor}^ powers referred to in the afore- 
said interrogatory. For some reason unknown to me, but doubtless 
well understood by the Department, we have in Mexico two consuls- 
general. To the consul-general at Monterey is given supervisory 
jurisdiction over a number of consulates in the northern part of the 
Eepublic, while to the consul-general at Mexico no such supervisory 
jurisdiction is given over the remaining consulates, that jurisdic- 
tion being given' to the diplomatic representatives. I respectfully 
submit for the consideration of the Department the propriety of 
relieving the diplomatic representative of this jurisdiction and invest- 
ing it in the consul-general at the City of Mexico, restricting the 
general supervision of the diplomatic representative to the two 
consuls-general. 

In answer to interrogatory No. 1, I have the honor to say that, in 
my judgment, it would be practicable for the diplomatic representa- 
tive here to perform the additional duties referred to therein, but 
it would considerably delay the particular work required of the con- 
sular officers, and if well performed, would entail upon this embassy 
much additional labor. 

In answer to interrogatory No. 2, I have the honor to say that 
T have carefully examined the diplomatic and consular regulations 
of Mexico, and have extracted such provisions as govern the rela- 
tions existing between the two branches of the service, either by law 
or by departmental regulations. A copy and translation of these 
provisions is inclosed herewith, from which it will be seen that in 
the Mexican diplomatic and consular service there is no such coopera- 
tion as that outlined in interrogatory No. 1, and that the Mexican 



PEOMOTION OF TEADE INTERESTS. 163 

Government has no commercial or industrial attaches. In my opin- 
ion, for the reasons expressed in the fifth paragraph of this dispatch, 
such attaches would not add to the efficiency of the consular service. 

In answer to interrogatory No. 3, 1 have the honor to say that, per- 
haps with the exception of a first-class clerk, with a salary of not less 
than $1,200 per annum, the programme described in interrogatory 
No. 1 could be carried into effect. 

Powell Clayton. 

[Trauslations from the Guia Diplomatica y Consular of Mexico for 1902.] 

Article 17 (from the organic law of the Mexican diplomatic corps, dated June 
3, 1896, p. 10: Chiefs of missions may order, whenever thej^ consider it expe- 
dient, that consulates within their jurisdiction be visited by one of the secre- 
taries of legation or by the consul-general, making a report of the result to the 
depatment of foreign affairs, 

* * * * * * * 
Article 47 (of the reglementary law of the Mexican diplomatic corps, dated 

May 7, 1888, p. 22; : Whenever there is not a consul-general in the country 
where a legation is established and the business of the office permits, one of 
the secretaries will take charge of the dispatch of matters of commercial 
character. 

Paragraph II (of the law relating to the establishment of consular agencies, 
dated February 12, 1834, p. 71) : In places where there is only a consul-general, 
because of purely commercial relations that may exist between the nation to 
which such an officer is apointed and the United Mexican States, that function- 
ary shall attend to such diplomatic business with which the Government may 
see fit to charge him. 

* ^ * ^ ^ ^« !(< 

Article 2 (of the regulations of the consular service, dated September 16, 1871, 
p. 77^ ) : The consular corps in a country where there is a Mexican legation 
shall be subordinate to the same, without this preventing the agents and 
employees of inferior rank from recognizing the consul-general, where there is 
one, as their immediate chief. 

* * * * * * * 

Article 7 (ot the same law, p. 77^: In cases of urgent necessity, in default 
or inability of a consular agent, the chief of the Mexican legation, or in the 
absence of the latter, the consul-general of the Republic to the country where the 
aforesaid case may have occurred, shall appoint, with tenj|)orary character, an 
agent Or employee of the proper rank, for the place where his services are 
required, reporting the appointment, as well as the causes for the same, to the 
department of foreign affairs, at the first opportunity, in order that the Govern- 
ment may take proper action. 

Opinions of G onsuls- general. 

CITY OF MEXICO. 

In answer to circular, " Promotion of trade interests," I write with 
diffidence owing to my comparatively brief experience in the service. 
It seems clear, however, that a slight modification in the system now in 
vogue with us would insure more satisfactory reports on all subjects 
of general interest and importance. At present, in Mexico for exam- 
ple, owing to the lack of general supervision, there must be unneces- 
sary duplication of work and lack of uniformity in results. Trans- 
mission of particular inquiries on subjects of general importance 
either through the ambassador or the consuls-general who could make 
suggestions, revise reports, and indicate errors of fact or judgment 
before forwarding reports to Washington would, without doubt, 
improve the service. But should this be done through the diplomatic 



164 PROMOTION OF TEADE INTERESTS. 

officer or the consuls-general? The latter are primarily commercial 
agents. AYill they not be more successful in the collection of commer- 
cial and industrial data if their responsibility as commercial agents 
is not divided with diplomatic officers? Of course, at this post, the 
consul-general is not now charged with any supervisory powers. His 
jurisdiction does not extend be^'ond his immediate district. He is 
merely a local officer. Nevertheless, it has been customary for consuls- 
general at Mexico City to issue reports on matters of general interest. 
Such reports are made evidenth^ with the approval of the Depart- 
ment. That their value would be greatly enhanced if the consul- 
general had supervisory power can not be questioned. 

But it is stated that there is an objection to this view oAving to the 
limitations upon the consular service in its lack of diplomatic status 
in obtaining information at first hand. This objection might be 
obviated generally, as it is now practically at this post, through the 
hearty cooperation of our diplomatic agents. A simple understand- 
ing that diplomatic representatives will render such assistance as may 
be necessar}^ in procuring information is all that is requisite. 

It seems to me that the functions of our diplomatic officers and of 
our consuls-general are now quite distinct and that it would not be 
wise to obliterate this distinction. It should be the ambition of our 
consuls-general to make a record in the collection of commercial and 
industrial data. Such positions should be filled either by those with 
special qualifications or by those whose work in subordinate positions 
has given evidence of peculiar fitness. 

Of course, our diplomatic positions are filled generally by men of 
high character and unusual abilities, and if such men personally had 
time to make suggestions touching the preparation of consular reports 
and to revise such reports, the benefits of the service would be great. 
But the demands upon them in their representative capacity are such 
that this work would necessarily be turned over almost entirely to 
subordinates specially appointed for the purpose at much lower sala- 
ries than are now paid our consuls-general, and presumably to men of 
less business capacity. Under such conditions, it seems to me that it 
could be done to i>etter advantage through the consuls- general. It 
should be distinctly understood, however, to prevent the possibility of 
friction, that consular officers are subordinate to diplomatic officers, 
and that they should exercise great care to insert nothing in their 
reports likely to give offense or to cause embarrassment to diplomatic 
officers. Furthermore, they should be encouraged to consult diplo- 
matic officers and to follow their advice in reports which, through 
broad generalizations, might endanger legitimate business enterprise. 

It may be that my ideas on this subject are colored largely by con- 
ditions in Mexico. Here it ^^^ould be highty satisfactory if the 
consuls-general could work as suggested under the supervision of 
the ambassador, who gives us the heartiest cooperation and whose 
advice we are always glad to follow. 

The additional- w^ork at this post could be done if we had a stenog- 
rapher, so that it would no longer be necessary, as at present, for the 
consul-general to spend so much of his time either in writing at long 
hand or in dictating to a machine. 

James Eussei.l Parsons, Jr., Oonsid- General, 

City or Mexico, Sepfemher ^, 1904-. 



PROMOTION OF TRADE INTERESTS. 165 

MONTEREY. 

Acknowledging receipt of circular dated August 4, I have the 
honor to state : 

I see no reason why the diplomatic service could not be utilized 
with great advantage in furnishing the Department such a class of 
information as is found to be impossible for consular officers to 
obtain, and I believe that such information would be of great benefit 
in the extension of our commerce in foreign countries. I conclude 
that the Department wishes a candid expression from consular offi- 
cers on this subject, and I will state frankly that I do not believe that 
it would be to the advantage of the service to submit consular reports 
to the diplomatic officers for inspection or revision. AYliile I have 
the highest respect for the diplomatic service of our Government, the 
officers of that service have their time largely taken up with another 
class of business, and it is impossible for them to become as well 
informed concerning commerce as the consular service, since the con- 
sular service devotes a large amount of its time and attention to the 
subject of the extension of our commerce in foreign lands. I do, 
however, believe that our diplomatic officers are in position to obtain 
a certain class of information which might be very difficult, or even 
impossible, for consuls to obtain. 

Our consular service is composed of an intelligent lot of Americans, 
capable of performing the work for which the}^ are commissioned, 
and I am decidedly opposed to the idea of submitting their reports to 
the diplomatic service for revision or correction. 

As to the question of the appointment of commercial attaches, I see 
110 necessity Avhatever for such a class of officers, as I am fully con- 
vinced that our diplomatic and consular service is fully competent 
to look after the interests of our Government and people in every 
particular which may be required. 

Philip C. Hanna, Consul- Geneval. 

Monterey, August 22, 190 1^. 



Opinions of other Consular Officers. 

CIUDAl) JUAKEZ. 

In accordance with circular instruction of August 4, I have the 
honor to submit my opinion, as follows : 

It has often occurred to me that a central bureau, or kind of clear- 
ing house, for commercial news and information in the City of 
Mexico would be useful. Through such an institution, consuls would 
be greatly facilitated in their work, and by cooperation of the bureau 
and the consular corps, reports and commercial information could be 
so arranged and digested as to prevent duplication — so concentrated 
and ordered as to prove more valuable and satisfactory to the com- 
mercial factors in the United States. 

AA^ien a particular manufacturer in the United States makes effort 
to enlarge his market and extend the demand for his product, he does 
not confine himself to a consular district, but seeks the opportunity 
embraced in the entire Republic of JMexico. In order, however, to 
procure the preliminary information that would prove useful to him 



166 PEOMOTION OF TEADE INTERESTS. 

he addresses letters (frequently circulars) to all the consuls. Not all 
the letters, perhaps, are answered ; and if they are, conditions are so 
different in the various districts that the replies do not prove alto- 
gether satisfactory, and leave the manufacturer in more or less con- 
fusion as to the extent of his opportunity and the best method of 
procedure. A concise, well-arranged answer, covering all points of 
information desired, and taking in the entire Kepublic, would prove 
more valuable. 

I am of the opinion that there should be a commercial attache in 
Mexico City, under the supervision of the embassy, and that, in a 
general way, and more especially in the propagation of information, 
there should be strict cooperation between that officer and the con- 
sular corps. Such an arrangement should not necessarih^ interfere 
with the spirit of initiative in the consuls. In the preparation of 
reports applicable to matters local to their districts, assistance could 
be rendered the consuls by the attache, and the consuls could cooperate 
with the attache in supplying material for answers to inquiries and 
the preparation of special reports. A'\liile a spirit of reciprocity 
would be necessary, I see no reason why it should not exist. 

The commercial attache of the embassy should be well paid, and 
should possess marked talent for investigation and the preparation of 
reports. His vocation would be to investigate, digest, arrange, and 
put into comprehensive form all kinds of matter of a commercial and 
industrial character. He should be able to see things as they are, and 
should know how to present them to the American factor in the man- 
ner best calculated to afford him the proper idea of his opportunities. 
He should be allowed a stenographer and traveling expenses, and 
should, when necessary, visit any part of the Republic in quest of 
accurate information and in the preparation of special reports. In 
the exercise of his official duties, he could protect Am.erican investors, 
who are attracted b}^ the extravagant prospectuses of *'' fake " rubber- 
culture and mining companies and other unsubstantial concerns. 
Since a great deal of American capital is entering Mexico in quest of 
QYQTj kind of investment, it would be an important part of the 
attache's duty to point out opportunities, and, by investigation and 
report, to protect the investor from fraud and misrepresentation, for 
the development of ]Mexican resources by American capital increases 
the volume of Am^erican commerce. 

Statistics of the importation of a given object into a particular 
consular district can not satisfy the American manufacturer fully, 
nor can they afford him the complete and accurate information he 
desires before seeking a new market. The attache at the embassy 
could secure at once, no doubt, statistical information covering impor- 
tation for the entire Republic. By addressing the consuls, he could 
obtain information as to the possibility of increasing the demand for 
the commodit}^ in their particular districts, and from these sources 
could prepare and supply to the, inquirer information accurate and 
complete, concise, and comprehending the entire country. The. in- 
quirer would thus receive, in one report, a full view of the field before 
him, its opportunities and its limitations. 

I have before me a letter of inquiry from the United States Export 
Association regarding the introduction of typewriters into Mexico. 
These queries were, no doubt, sent to all the consuls in Mexico. It 
appears to me that a commercial attache could prepare an answer that 



PROMOTION OF TRADE INTERESTS. 167 

would be more satisfactory than a miscellaneous collection of replies 
from consuls. The attache could ascertain the number of typewriters 
imported into Mexico, their quality, price, etc. As typewriters would 
be distributed mainly through agencies established in Mexico City, 
he could ascertain the quality of machine for which there is the great- 
est demand. With the aid of the consuls, if it were necessary, he 
could furnish the names of probable agents in the various cities. On 
the whole, the attache's report would cover the typewriter market in 
all Mexico, and would, I believe, prove more valuable than a collec- 
tion of answers from the consuls, who would not have the attache's 
sources of information upon which to draAv. 

I have before me a letter from Grinnell, Willis & Co., of New York, 
asking information that will aid them in introducing a line of cotton 
goods ; from Boyle, Woolen & Co., of Dallas, who make baskets, boxes, 
fruit crates, etc. ; from the Advance Pump Company, of Battle 
Creek. My deductions in regard to answering the inquiries con- 
cerning typewriters would apply with reference to cotton goods, 
crates, and pumping machinery. 

Altogether, I believe our commercial interests may be well served 
by the establishment of a commercial bureau in connection with the 
embassy. The value of the attache's services would depend, in a large 
measure, upon the industry, application, and peculiar fitness of the 
attache himself. As far as the consuls are concerned, I am confident 
they would heartily cooperate with the attache in promoting the 
interests of our manufacturers and exporters. 

Charles W. Kindeick, Consul. 

CiuDAD Juarez, October 77, lOOJi. 



CIUDAD POKFIKIO DIAZ. 



Replying to circular, " Promotion of trade interests," I beg to say 
that, while vnj experience in this service is not extensive, I realized 
long since that the consular officer is greatly hampered in his work, in 
this, that he is powerless to command the data from which he is 
expected to tabulate the information demanded at his hands. 

There are many things of interest to the trade in the United States 
to be gathered by each consular officer peculiar to and showing the 
conditions existing in his particular locality; but when he is told to 
report, in tabular form, minute information as to kind, quantity, and 
value of imports or exports to or from his district, there is nothing 
left for him to do but apply to the Mexican official having record 
of the same, who Avill most likely inform him that he has no force to 
put upon such work, nor is there any fund at his disposal, etc. The 
consular officer has then exhausted his resources, and can only report 
from his general knowledge and best information, all of which is 
uncertain, incomplete, and unsatisfactory. 

I have hitherto reported to the Department this state of the case. 

The fact is apparent to all, however, that a diplomatic representa- 
tive is free from the difficulties which stand in the way of the ordi- 
nary consular officer, having his residence at the seat of government 
of the foreign country, v\^here there is a proper record of the various 
industries, and of the export and import of all merchandise to and 
from the country: and having diplomatic relations in existence 



168 PROMOTIOIS OF TRADE INTERESTS 

between the country he represents and the foreign power, he is in posi- 
tion to have any reasonable request granted him. Our diplomatic 
representative can also, without trouble, procure reports from any 
part of the foreign country, as to local conditions, from that country's 
local official, ^^dlich iJiaj be, at his request, either furnished to him or 
to such consular officer of his own country within whose district such 
foreign official may reside. 

I heartily approve the plan suggested by your circular, and am of 
opinion that, if such cooperation as is there contemplated can be 
secured betA^ een the diplomatic representatives and the consular offi- 
cers, the facilities for collecting commercial intelligence will be 
greatly enhanced and facilitated. 

I recognize the wisdom of the Department's provision in said circu- 
lar, reserving the right to determine whether a report of a consular 
officer shall be amended or suppressed, in whole or in part, and that 
the annotations made b}^ the diplomatic officer are simply for the 
assistance of the Department in reaching just conclusions. 

M}^ first impression was that friction might result from the new 
order of things, especially if the diplomatic representative should 
fail to be diplomatic in his intercourse with the consular officers, or 
should show a captious or fault-finding spirit in dealing with the con- 
sular corps. The danger on this point will be obviated by the pro- 
vision of the circular, to the effect that the Department will decide 
finally upon the work of the consular officer. The work of the diplo- 
matic representative takes the same relation in the final determination 
of the matters reported as that of a master commissioner in a court of 
equity, which the court passes upon, confirms, or ignores in its final 
determination of the equities involved. Taking this view of the mat- 
ter, I am satisfied that, if this plan is consummated, the utility of the 
service will be greatly advanced and a much more satisfactory result 
will be obtained. 

Lewis A. Martin, Consul. 

CiUDAD PoRFiRio DiAz, September 7, 1904. 



MAZATLAJNT. 

I have the honor to acknowledge the receipt of circular, " Promo- 
tion of trade interests," and would most respectfully submit for your 
consideration the following: 

It seems to me that the step proposed is second only in importance 
and far-reaching effect in increasing our trade relations with other 
competing nations to the creation of the Department of Commerce 
and Labor, and if the diplomatic and consular service will " take 
hold " in patriotic spirit, as well as energy, we would soon have the 
best organized and best equipped commercial bureau in the world. 

The difficulty experienced by consuls in mam^ countries when they 
desire to obtain statistics for a comprehensive report, is often, in- 
creased by the natural jealousy excited by the ra]3id increase of Amer- 
ican commerce and by the plea on the part of officials that they must 
obtain permission from their governments before the}^ can give the 
desired information, which, in cases where there is no direct railroad 
communication with the capital, would make the report, when re- 
ceived, practicably useless on account of the length of time consumed 



PKOMOTION OF TRADE INTERESTS. 169 

in securing the same. Next, almost ail officials object to doing such 
work Avithout compensation, and when ordered b}^ their superior to 
comply Avith the request, they sometimes delay the report so long that 
it becomes worthless. 

I have always made it a point to be on very friendly relations with 
the heads of the various state and federal departments in my jurisdic- 
tion, and in every instance that I asked for information, the promise 
was quickly and readily given, but the execution of it was usually 
slow. It would be of the greatest importance to the consular corps, 
in making the various reports called for by our manufacturers and 
exporters^if they could have recourse to the diplomatic corps and 
request them to furnish such information, which could not be obtained 
in their consular districts without encountering unreasonable delay. 
Promptness in obtaining the desired information is of the utmost 
importance, and nothing would facilitate this more than the coopera- 
tion of the diplomatic corps with the consular corps. 

Being a commercial nation, it would be of untold value for the 
United States had we a commercial or industrial attache in each 
country, just as we have already a military attache. The duties of 
commercial attaches should be principally to secure statistics relating 
to the exports and imports of the United States; to report upon the 
manners, customs, and habits of the merchants of the countries to 
which they are accredited; to obtain data showing the place and 
country from which they import their goods; the value and class of 
such goods, duties, freights, and also custom-house regulations; to 
suggest means of avoiding friction between the custom-house officials 
and shippers ; to provide information as to railroads and waterways ; 
their facilities for handling freights, etc. It is evident that a thor- 
ough business man, with large experience and broad views, would be 
needed to fill such a position. 

Louis Kaiser, Consul. 

Mazatlan, August 27\ 1901^. 



NOGAI.E8. 



I have the honor to acknowledge the receipt of circular of August 
4, on which I am instructed to give my views. 

The diplomatic service would be of great assistance in obtaining 
general statistical information at the seat of government of a foreign 
country, for the reason that consuls are usually limited to restricted 
districts. It is my opinion, that the advance made in recent years 
by consular officers in their utility in gathering information has been 
caused by an improvement in the personnel of the corps and by their 
pride in an independent service in direct communication with the 
Department, which holds each one of them responsible for his acts. 
In case this direct responsibility were assumed by the diplomatic 
service, would it not take away from consuls the stimulus for their 
best individual efforts? Valuable information is often reported by 
consuls, that might give offense if communicated by a diplomatic 
agent or received his official sanction ; and furthermore, in this coun- 
try, it is sometimes obtained upon private solicitation when, in my 
opinion, an official request might be refused. 

Albert E. Morawetz, Gonsid. 

NoGAT;ES, September S, 190 4 . 



170 PROMOTION OF TRADE INTERESTS. 



NUEVO L.4lREDO. 



I have the honor of replying to yonr circular, " Promotion of trade 
interests," and of giving, as requested, a statement of my opinion. A. 
careful reading of the circular discloses a thorough grasp of the sub- 
ject, both as to its general plan and the exigencies of its application ; 
but to confirm its advisability in ever}^ particular, and, doubtless, to 
secure a cheerful concurrence of the officers affected, 3'ou have called 
for an expression of their views. 

To begin with, the plan and its purpose are admirable. An accu- 
rate and positive method of gleaning trade information is indispen- 
sable to our foreign commerce, and to intelligent legislation. It 
can not be less than a patriotic pleasure for the consular service to 
cooperate with the Department in making this service as effective as 
possible to that end. 

For reasons which I conceive to be good, I believe the appointment 
of a commercial attache to be desirable. The duty of such attache, 
acting as insj^ector-general of commerce for an entire nation, would 
be uncompromising in its demand upon his time and energy, and 
much vigilance and study would be the price of the wide and varied 
information which must be the basis of reliable calculation. With 
the requisite time and material, an attache may become a commercial 
authority, capable of weighing the conflicting data before him, and 
supplying our tradesmen, and especially our legislative bodies, with 
such information as would enable them to secure all possible advan- 
tages to commerce and to avoid mistakes. It is the exclusive work 
of a capable brain, and could not justly be added to the duties of 
embassies as now organized. 

If this service is to be performed to its fullest measure, verging 
upon the competitive spirit which prompts it, such officer might be 
looked upon with disfavor by the accrediting country, and such duties, 
performed by our regular diplomatic corps, might work detriment to 
successful diplomacy in other directions. The incumbent should 
therefore stand apart and independent of other dijolomacy, his prin- 
cipal relation to the foreign ministry being that of statistician ; never- 
theless, his diplomatic status should have a dignity adequate to the 
interests involved. As a means of counteracting any possible hostility, 
and to make the office as fraternal as possible among mutual compet- 
itors, I would respectfully suggest that the courtesy of an attache's 
statistical library relative to his own country be extended to similar 
incumbents of the accrediting country. 

While the appointee to this office should be a man whose opinion 
would be valuable, it is, nevertheless, desirable that the Department 
be responsible for the acceptance or rejection of a report: First, 
because the consular officer is entitled to be heard at headquarters, 
and, second, because the attache should not be placed in a position to 
create offense or to make his authority felt by those with whom he 
cooperates. 

It is my opinion that annual reports from officers so specialized, 
bearing ujpon the multitudinous conditions which affect trade, would 
enable an administration to take its international bearings, and would 
go a long way toward remo^dng tariff legislation from a position of 
indefiniteness to a position more positive and scientific. 

James G. Burr, Acting Vice-Oonsul. 

NuEVO Laredo, October 6^ 190Jf. 



PROMOTION OF TRADE INTERESTS. l7l 

SALTELLO. 

In compliance with circular of August 4, asking for an expression 
of my views upon the best method for the coordination and improve- 
ment of existing facilities for the collection of commercial intelligence 
and the promotion of American trade interests in this country, I beg 
to say that suggestions from diplomatic officers on certain inquiries 
from the Department would be of material assistance to consular 
officers, the former being acquainted in their diplomatic capacity 
with facts of commercial value, which are never brought to the 
attention or knowledge of a consular officer. Such source of informa- 
tion would certainljT- facilitate the inquiry and help to make it more 
exhaustive. 

Victor L. Duhaime, Consul. 

Saltillo, September ^, 190J^. 



TAJVEPICO. 



In response to circular, " Promotion of trade interests," I submit 
the following : 

To the American exporter, a commercial attache stationed at the 
capital of a country where statistical information could be promptly 
and accuratelj^ obtained, where the first news of new enterprises and 
government works could be secured, would be of great value, pro- 
vided he be thoroughly posted on the local conditions of the various 
parts of the countiy to Avhich he may be accredited and be familiar 
with the language thereof. Mexico, for example, from its tropical 
coast to its temperate interior on a plateau 6,000 feet above the sea, 
offers so varied a field for exploitation, so wide a variet}^ of product 
and demand, that such commercial attache would be of little use un- 
less he could advise exporters that mining machiner}'' could not be 
sold in Tampico, and that the market for thrashers was in Morelia 
and Jalisco, and not in Vera Cruz. 

I believe such commercial attache should be assigned to an embassy 
or legation, unless it would detract from the dignity thereof, for the 
fact that business is paramount over the w^orld to-daj^, is undoubted. 
If the collection of statistics was all that is desired, an employee of a 
consulate could procure them. A competent attache could save time 
in the Department of State by editing reports from consuls, for they 
are often duplicates, and such revision, if general, would eliminate 
reports from the consuls to one country on the affairs happening in 
other consular districts until such reports w^ere verified, thereby 
avoiding some mistakes. 

In a country like Mexico, the statistics of imports of any one port 
are misleading ; the total imports, alone, are of value. Reports show- 
ing Tampico to have received large shipments of chemicals and ma- 
chinery bring letters from our exporters asking for the names of 
the principal wholesalers in those lines in Tampico, and the writers 
are surprised to learn that there is none such. 

It is most important that the exporter and manufacturer should 
know of the demand for certain goods in a country, but it is also nec- 
essary that he should know the part of the country from which the 
demand comes. This should be the duty of the attache, to be in touch. 



172 PROMOTION OF TRADE INTERESTS. 

with such needs, and to him all communications to consuls should be 
referred where the information desired covered more than the imme- 
diate consular district. 

The questions propounded in the Department circular deserve the 
most careful consideration; the answers thereto will doubtless vary 
with the country from which they come. The seriousness and im- 
portance of the subject would seem sufficient to entitle the idea to a 
trial; therefore, would it not be wise to select a country which is a 
keenly competitive market for the American and European merchant 
and send to it a capable business agent or attache accredited to the 
embass}^ and then watch results in the saving of time to the consuls, 
the quality of the information furnished to business inquirers and the 
condensing of business reports? The opinion of our manufacturers 
and exporters of these results — in addition to that of the Depart- 
ment — would provide a basis for determining whether the plan 
shoidd be extended or abandoned. 



. Tampico, September 6, lOOJf. 



Samuel E. ISIagill, Consul. 



VERA CRUZ. 



In response to circular of August 4, " Promotion of trade interests," 
I have the honor to submit the following: 

Whether or not it would be practicable for the embassy to transmit 
to consular officers instructions from the Department of State, from 
time to time, is a question that may be unhesitatingly answered in the 
affirmative, provided such instructions refer to matters within the 
consular district, or to points readily accessible. If the embassy, 
after a careful study of the subject, should give the consul the benefit 
of its opinions and note the same in the shape of facts or suggestions, 
the information thus obtained might prove to be of the greatest value 
and enable the consul to render a report as clear, complete, and com- 
prehensive as the material at his command will permit. 

Should consular officers be instructed to transmit their reports to 
the Department through the embassy, the latter doubtlessly could 
revise, change or correct a report, call attention to possible errors, 
either of fact or simply of judgment, and if necessary, in the opinion 
of the ambassador, eliminate entire sections of the same^ if of the 
belief that such might give offense to the country to which he is 
accredited, or embarrass him in his official relations to the same. 

With reference to the possible effect the plan suggested might pro- 
duce on the consular service, I am prepared to state that this consu- 
late can not see any serious objections to the proposed innovation, 
and while not altogether sanguine of its complete success, appreciates 
the importance of cooperation with the embassy, as the latter, by its 
diplomatic status, has command of facilities for securing valuable 
data from the government statistics at first hand not obtainable by a 
consular officer with the same facilit}^, or perhaps not at all. The 
embassy, by transmitting such information to the consul, would be 
of great assistance to the latter in all instances when such data are 
required to complete and fully cover all points upon which intelli- 
gence is desired. The diplomatic officer, however, should exercise the 
greatest care in determining what jDart of a report should be changed. 



PROMOTION OF TRADE INTERESTS. 173 

modified, or possibly eliminated altogether, and his actions should 
not be governed by mere impressions he may have acquired through 
other sources, not accesible to the consular officer, as in that case it 
may result in practically destroying the value of a report altogether, 
or at least impair its utility. 

In all matters appertaining to a consular jurisdiction, the con- 
sular officer possesses the inestimable advantage of personal acquaint- 
ance and daily contact with merchants, importers, and exporters of 
all nationalities; he is on friendly footing with government officials, 
state and municipal; he is or perhaps has been located at the prin- 
cipal seaport of the country ; is more or less familiar with the methods 
and customs of the people of his district, and, necessarily, must be in 
all respects better equipped than a diplomatic officer possibly could 
be with respect to procuring reliable and trustworthy detailed intel- 
ligence from his particular district. This is not at all the case with 
the embassy, unless an officer specially detailed for the purpose and 
properly qualified for the position should be appointed. In this case, 
he should be endowed with authority to pursue his inquiries regard- 
less of expense or time, should the subject warrant it. However, in 
this respect, a consular officer, experienced and thoroughly conver- 
sant with affairs within his consular district, is perhaps better qual- 
ified for the work under consideration than a" newly appointed 
attache, provided he is no less restricted or limited in his methods 
of obtaining intelligence. 

In this respect, the Department, in my opinion, will act wisely by 
communicating directly with the consular service, even though all 
consular reports should be transmitted to the Department through 
the embassy. It is to be assumed that the latter, in course of time, 
would gather valuable and reliable intelligence on many subjects by 
reason of having studied the various consular reports passing through 
its hands, but whenever a consular officer has information to trans- 
mit not called for by special instructions, and this information has 
been secured from sources within the limits of his jurisdiction or 
from any other trustworthy and reliable source, he should address 
himself directly to the Department, without submitting the report to 
the embassy and thereby delaying its transmission, perhaps unneces- 
sarily, and so impair its usefulness to the public at large. 

Wm. W. Canada, Consul. 

Vera Cruz, Septemher 30, 1904. 



CE:N^TRAL AMERICA. 

Report from Minister Merry. 

American Legation, 
San Jose., Costa Rica, September ^, 190^. 
I have the honor to forward a memorandum prepared in accord- 
ance with your circular to diplomatic officers of the United States, 
dated July 29, 1904, and relating to the promotion of trade interests. 

1. It will be practicable at any time to transmit to consular officers 
instructions received from the Department of State for any informa- 
tion wanted, and to add thereto when forwarding such information 



174 PROMOTIOI^ OF TEADE INTEEESTS. 

anything available that msij tend to increase the value of the consular 
report. The general revision of the consular reports thus transmitted 
will be of doubtful value, and should, it is suggested, be restricted to 
errors of fact. Any information that might give offense or cause dip- 
lomatic embarrassment should be so notified to the Department of 
State, with request for its being treated as strictly confidential and 
not available for publication. 

2. All consular officials in this jurisdiction (1 consulate-general, 4 
consulates, and 6 consular agencies) are required to correspond regu- 
larly with this legation by every mail (generally trimonthly), and 
replies from the legation are promptly made. All consular officers 
in this jurisdiction comply with this instruction except two, who are 
foreigners with controlling interests not specially friendly to the 
development of American industries and commerce. 

This legation being accredited to three republics ( Costa Eica, Nica- 
ragua, and Salvador), its usefulness to the Department of State must 
depend somewhat upon information received from consular officers by 
means of the correspondence alluded to. Consequently, the legation 
letters to these officials are largely interrogatory and suggestive, but 
not intended to call for information properly appertaining to their 
usual consular reports. On the contrary, occasions have been availed 
of to suggest that such reports shall be made direct to the Department 
of State on appropriate tojoics, and care has been taken to avoid the 
impression that it is desired to deprive consular officers of the credit 
appertaining to them in connection with reports made direct. It is 
obvious to the Department that there is a great difference in the value 
of consular correspondence; some officers write concise and valuable 
dispatches while others are poor correspondents, and occasionally 
there is a disposition to exaggerate the conditions alluded to. Conse- 
quently, intelligence thus acquired must be used with discretion to 
avoid sending unreliable information to the Department of State. 

It is my impression that conunercial attaches to Spanish-American 
legations will not be useful to the United States. Eecognized as such 
distinctively, they Avill be viewed with suspicion by the Governments 
and by the mercantile and industrial interests of the Eepublics, and 
so far from facilitating information to them, it will be withheld, 
when practicable. At present the consuls, as commercial representa- 
tives, can obtain the class of information needed for the benefit of 
our people without being recognized as being specially interested in 
doing so. 

The consular system of the United States, as proven by its work, 
is, in my judgment, the best in the world, but can be improved by 
appointing salaried vice-consuls in place of consular and commercial 
agents, who are compensated by fees by them collected and allowed 
to transact other business as Avell as to hold other official appoint- 
ments. The additional cost of making this most desirable change 
would, I apprehend, be inconsiderable, and can be closely estimated 
without difficulty. 

3. No additional assistance would be at present needed at this' lega- 
tion to carry into effect the programme described under question No, 
1. In the case of increased work resulting from many more transla- 
tions, with reports on commercial and industrial topics, it might be 
necessary in the future to employ a translator and clerk to prepare 
documents, under control of the minister and secretary of legation. 



PROMOTION OF TRADE INTERESTS. 175 

I shall have great pleasure in carrying out any instructions sent 
me by the Department of State in this connection. The Department 
is w^ll aAvare that there occurs at times considerable friction between 
neighboring consular officials, and it is possible that some of these 
officials AA^ill consider the execution of the Department instructions 
in this connection as an interference with their official duties on the 
part of the legation. I am of opinion, however, that such consular 
officers are to be considered exceptions, the general disposition being 
to honestly serve the interests of our Government and its citizens. 

William Lawrence Merry. 



Opinions of Consular Ofjicers. 

BRITISH HONDURAS. 

American Consulate, 
Belize^ August 21^.^ 190'^. 

In reply to circular of August 1, requesting an expression of views, 
I would answer question 1, as the only question that could apph' to 
this particular office. 

I think that the assistance of legations in giving or revising infor- 
mation as to trade conditions is only useful and practicable when 
rendered in the country where the minister resides, and I can not see 
how the ambassador in London, for instance, can advise of conditions 
or openings for trade in distant colonies of Great Britain, or detect 
a ej.j.()^g Qf fact " in reports, though any errors of language or of 
judgment might well be passed upon by him without any prejudice to 
the later review by the Department ; that is, if the delay thus caused 
is not of any consequence. I do not, as a rule, think it advisable to 
have a consel's report sent to ministers at distant capitals from posts 
so far away. 

W. L. Avery, Consul. 

Belize, August ^^, 1901^,^ 



GUATEIVIALA. 

I have the honor to report in reply to circular, " Promotion of trade 
interests,'' that it seems to me it would be better to have the consul- 
general do the work of a commercial attache, rather than incumber 
the diplomatic representative with that class of work, which is foreign 
to most of his more important duties, while it is in direct line with 
the duties of the first-named officer. It would seem that the social 
and diplomaic duties of an ambassador or minister would be inter- 
fered with much in assuming such duties, while they would strengthen 
the position of the consul-general. 

The relations of the diplomatic and consular officers at the capital 
should be such that the consul-general could freely confer with his 
chief on all semidiplomatic questions that might come up in dealing 
with commercial matters. It would be necessary to enlarge the scope 
of the consul-general's relations with the Government where he is sta- 
tioned, either by the Department or by a request on the part of the 



176 PROMOTION OF TRADE INTERESTS. 

diplomatic representative that the consul-general be given special 
privileges in looking up all commercial and industrial matters. 
This, I take it, would put him in touch with ever3^thing necessary 
to carr}" out his work. 

Alfred A. Winslow, Consid-General. 
Guatemala City, Septewher 19^ 190.lf. 



HON^DURAS. 

CEIBA. 

In reply to circular of August 4, I wish to say that, in my opinion, 
any plan for the cooperation of the diplomatic with the consular corps 
for obtaining commercial information would be a great improvement 
on the existing facilities. The services of the diplomatic officers 
Avould be particularly valuable in obtaining statistical information. 
Even if the consular officer could obtain such information, it only 
concerns the port where he is located. This statistical information 
of exports and imports is prepared at the various ports of entry and 
forwarded to the capital, where eventually it is published in some 
periodical issued officially b}^ the Government, but by the time it has 
been so published and reaches the consular officer, it is too old to be 
of interest to the enterprising American merchant and exporter. A 
diplomatic officer would iind it easy to obtain such reliable infor- 
mation, and it could be used as a supplement to the report of the 
consular officer regarding matters of importance and interest in his 
local district. 

Dean E. Wood, Consul. 

Ceiba, Octoler 1, lOOJf. 



ITTILLA. 



In compliance with circular of August 4, I have to report that, in 
my judgment, the plan proposed is both desirable and feasible, and, 
from my experience here and in Mexico, the only plan which gives 
any clear promise of searching out and reporting all the facts. There 
should be no temptation on the part of consuls, either overambitious 
or from a mistaken sense of duty, to cover one another's territor}^ or 
report on maters coming more naturally under the authority of the 
minister or consul-general. 

It is manifestly absurd for me, in ni}^ insular position, to report 
upon things continental that can Avith greater ease and authority 
be reported upon by the consul at Tegucigalpa or the consul at 
Puerto Cortes. It is clear to my mind that the diplomatic officer can 
imlock some doors that the consul can not reach. 

If there be any lack .of cooperation between diplomatic and consu- 
lar officers, a step in the direction might be taken by iuA^esting the 
consul-general or the consul at the capital of a country or in some 
prescribed, district with authority for gathering data and reporting 
upon matters pertaining to the promotion of trade and commerce, 
all consuls in his district to report through him, this making him 



PEOMOTIOTq- OF TRADE INTERESTS. 177 

responsible for the adequate reporting of his district. Such consul- 
general or consul could be selected and appointed under instructions 
officially emphasized. I^et the appointee have the equivalent ox a 
newspaper training, or at least the instinct for commercial news, 
and let all the consuls in his district be encouraged to keep in personal 
as well as official touch with him. 

More effective service might possibly be secured b}^ allowing the 
minister at the capital to attend to his diplomatic functions without 
being loaded with this extra work, and fixing clearly this proposed 
responsibility upon some consular officer at the capital who shall be 
in touch Avith the minister. At any rate, the consular service might 
be thus strengthened and made more efficient. 

Either course would be preferable to the present method, or lack of 
method. 

John B. Richaedson, Consul. 

Utilla, OctoUr 19, 190 Jf. 



NICARAGUA. 

MANAGUA. 

In reply to circular of August 4, I beg to state that, in my opinion, 
the plan for the cooperation of diplomatic and consular officers for 
the '' Collection of commercial intelligence and the promotion of 
American trade '' is excellent for those countries where such courte- 
sies are extended only to the diplomatic service, but I must confess 
that I am unable to see what would be the advantage in Nicaragua, 
for instance, w^here ever}^ courtes}^ of that kind is extended to the 
consul, and no limitation is put upon him owing to lack of diplo- 
matic status. 

I have always cultivated such relations with the officers of this 
Government that I can go directly to any officer, high or low, and 
have never been refused the information requested or a personal 
interview with any official, from the President and his ministers 
down to the collector of the port. A^^ienever an}^ diplomatic officer 
accredited to this country has desired any information on whatever 
subject, it has been the custom here to obtain it through the consular 
officer. For instance. Minister Merry has alwa3^s obtained, through 
me, what information he has required for his reports, and the only 
difficult}^ encountered is the lack of a bureau of statistics, where such 
information can be obtained, as the minister's reports and all other 
statistics are old before they are published. 

Chester Donaldson, Consul. 

Managua, SejAember 10, 1901^.. 



SAN JUAN DEL NORTE. 



Keplying to the Department's circular, " Promotion of trade inter- 
ests," I beg to say that the plan outlined for the cooperation of the 
diplomatic and consular services would, in my opinion, add much to 
the effectiveness of the consular service and make possible results 

H. Doc. 245, 58-3 12 



178 PROMOTION OF TRADE INTERESTS. 

which are not attaiiiable under present conditions. Even in an unde- 
veloped country like Nicaragua, a consul is constantly receiving letters 
asking questions that can be properly answered only wdth data from 
all the consular posts in the country. As it is now, he would not feel 
justified in often asking his colleagues for information, and if he 
did, could only expect meager replies. 

If the plan proposed by the Department were in operation, impor- 
tant questions could be forwarded to the legation, where they could 
be transmitted to the various consulates, and the combined replies, 
together with such information as it would be possible for the lega- 
tion to obtain, would make complete and reliable answers. On the 
other hand, the legation would be constantly making requests for 
information upon points which, although the data might be at hand, 
a consul might not think of reporting upon, not knowing the informa- 
tion was desired. 

The system would give American merchants a feeling that the 
replies could be relied on, and many foolish ventures would be pre- 
vented and many good projects brought into being. Doubtless, such 
an arrangement would eventually lead to a more sj^stematic and 
thorough collecting of trade-museum samples, and would be benefi- 
cial in various other directions. 

John Todd Hill, Consul. 

San Juan del Noete, September ^, 190 Jj.. 



SALVADOR. 

Opinions of the C onsul-General. 

In replying to circular " Promotion of trade interests," it seems 
best to show the facilities of this office and the cooperation that ma}'- 
be expected in the legation's efforts to collect accurate commercial 
information. 

In this connection, it may be stated that there exist locally two 
sources of such information: The Government bureau of statistics 
and the private business houses and industries. There exists no 
chamber of commerce, mining bureau, or merchants' association. The 
Government office of statistics confines itself to collecting and com- 
piling statements more immediately concerning the public revenues, 
and these consist principally of tables of imports and exports 
through the different ports, values of merchandise and products thus 
passing in and out, receipts and expenditures of the several fiscal 
offices, and comparisons with fiscal business transacted during former 
years. Minutely detailed information is not obtainable. To illus- 
trate, I would say that merchandise of a similar kind is always 
brought under one general head. Thus we find that under 
" Machinerj^ " all metal or woodworking implements, coffee plants, 
sawmills, windmills, engines, and boilers are classified under this' one 
head, and it is not possible to obtain the importations and values of 
each group. To this is added the difficulty that these statistics are 
first got out in the rough in March or April of each year, and so 
first appear in the report of the minister of finance and public credit 
presented annually to the National Congress. After revision, they 



PROMOTION OF TRADE INTERESTS. 179 

are not published until November, so that they are always some nine 
months old before reaching the general public. 

Through the courtesy of the Government, this office is conceded 
very free access to the bureau, and all information requested is 
always promptly given, within the limitations above stated. Possi- 
bly, more accurate sources of information as to port operations are 
the different forwarding houses there established. They, however, 
publish no reports or statistics, and are also quite reticent as to the 
business they transact, so that they can not be relied upon to furnish 
figures of any kind. In other lines, the local business houses must be 
de^Dended on. This is, for the same reason, necessarily a tedious and 
unsatisfactory method of procuring what is, at best, only an approxi- 
mate estimate, wherever figures are concerned. On the other hand, 
it is the only way of getting at the merchants' requirements whenever 
it is desired to indicate to manufacturers the measures best calculated 
to attract this market. 

I am not aware that Salvador maintains any commercial or indus- 
trial attaches specialty or exclusive^ charged wdth the duties of such 
an office. Its consuls collect and forward, from time to time, such 
data as they consider useful and advantageous to their country's 
industrial interests, much in the same manner as obtains in this serv- 
ice of other nations. This office receives inquiries, from to time, from 
its legation, and every endeavor is made to forward the corresponding 
report as fully and promptly as possible. 

In conclusion, I may state that the local consular officer must be 
solely depended on for commercial data. As shown, the local Gov- 
ernment bureau of statistics is deficient; the private business houses 
do not care to publish their transactions, and what tabulated state- 
ments are given out come so late as to lose much of their usefulness. 
As so little is given to the general public, and as this office has access 
to whatever official information exists, it is difficult to indicate how 
the consular officer, under local conditions and circumstances beyond 
his control, could better cooperate in this matter with the legation or 
Department of State. 

John Jenkins, C onstil- General. 

San Salvador, Novem%ber i7, 190 1^. 



BRITISH WEST INDIES. 

Opinion of Consular Officers. 

ANTIGUA. 

I have the honor to acknowledge the receipt of Department circular, 
dated August 4, in regard to a plan for the cooperation of diplomatic 
and consular officers for the increase of trade. 

These islands are so far separated from the home government and 
from the embassy that the plan would not be practicable here, but I 
should think it very valuable near the seat of a central government. 
The consul here has ready access to the colonial secretary's office and 
to the governor of the colony, and while I have been here, I have 
found both very ready to grant any reasonable request. 



180 PROMOTIOI^ OF TRADE INTERESTS. 

In the islands away from the head of the colonial government. I 
dare say the consuls do not find it so easy to get what they want. It 
might, therefore, be a benefit to the service to place the consul or 
consul-general at the seat of a colonial government on a basis that 
would alwaj^s insure them such access to the head of the government 
as would enable them to get what information was desired. I throw 
out this suggestion for what it is worth, without knowing Avhether 
this would either be possible or desirable. Certainly at the present 
time, it would not be necessary. 

W. E. EsTES, Consul. 

Ais-TiQUA, August 2S^ 1901^. 



BAHA3IAS. 



In answer to circular, " Promotion of trade interests," I have to say 
that, since there is no embassy or legislation in this country, my views 
can have little value. As far as facilities for obtaining official infor- 
mation are concerned, I should never have any trouble in obtaining 
full and satisfactory answers to an}^ questions I might ask. 

Julian Potter, Consul. 

E'assau, ISJ"ew Providexce, September 6, 1904- 



BAKBADOS. 

In reply to the Department's circular, " Promotion of trade inter- 
ests," I will state, after careful consideration, that while the circular 
undoubtedly does not apply to this post, as I can always obtain easily 
all information possible without any outside aid, I believe that in 
some countries a commercial attache would be of great assistance in 
procuring data and information desired at times by the Department, 
which a consular officer might not be able to obtain without assistance 
through diplomtic channels. 

David F. Wilber, Consul. 

Barbados, West Indies, December 5, 1904- 



WEST IIS^DIES. 
Report from, Minister Squiers. 



CUBA. 



American Legation, 

Hahana^ August 19^ WOJf. 
Acknowledging receipt of Department circular instruction, dated 
July 29, 1904, I have the honor to say that a definite plan of action 
for the guidance of diplomatic officers in the preparation of syste- 
matic, reliable, and carefully compiled commercial reports would, 
without doubt, keep our manufacturers and exporters more closely 
informed as to actual trade conditions, and there is no reason why 
such reports, as well as the collection of trade statistics and data, 



PEOMOTION OF TRADE INTERESTS. 181 

should not be undertaken by officers in the diplomatic service. These 
officers have opportunities for obtaining reliable information directly 
from the departments of government specially charged Avith trade 
matters. Consular officers, on the other hancl, having no relations 
with the government departments, depend for their information 
either upon unreliable advance reports published in the newspapers, 
on trade gossip, or on long-delayed official publications. Informa- 
tion reported under such conditions is uncertain, possibly untrue, and 
therefore unreliable, misleading, and worse than none. 

A consular officer Avhose knowledge does not extend beyond the 
limits of his particular jurisdiction is incompetent to make reports 
on conditions which obtain outside of his district. His reports, 
however, would be of great service to the official charged with making 
a general report on the trade conditions of the whole country. Hav- 
ing access to ail the commercial information collected by the depart- 
ments of government specially charged with compiling trade statis- 
tics, this official is the one best equipped for making a report of 
greatest service to manufacturers and exporters. The information 
would be exact and reliable, being based on the information furnished 
by the consul and verified by that obtained from Government sources. 

Special reports made by consular officers from time to time ought 
to be revised, since conditions prevailing in their consular districts 
possibly do not exist elsewhere. In order to act intelligently and to 
take advantage of trade conditions in a particular locality, a manu- 
facturer or an exporter should be closely informed on the trade situa- 
tion as a Avhole, and hence unrevised reports from a particular dis- 
trict are often very misleading, and, if acted upon, costly. 

Referring to the questions on the third page of the circular, I 
have to say that T consider it entirely practicable for this legation 
to assist the Department in obtaining information from United 
States consular officers in Cuba, according to the suggestions contained 
therein, and when such consular reports are received, to undertake to 
revise, correct, or add to them, according to the best information 
obtainable here ; and to cooperate generally with the consular service 
in the collection of trade data and information according to any line 
of action laid down b}^ the Department. 

A w^ell-equiped commercial attache would be of great assistance, 
particularly in those countries where we have an undeveloped trade, 
but with good prospects for increasing it, as in Cuba, South America, 
and the Far East. 

Generally speaking, a secretary of legation has no special qualifica- 
tion, training, or inclination for such work, the traditions of the 
service being opposed to it. 

Unless the Department finds it advisable to add a commercial 
attache to this legation, I consider the present staff quite equal to the 
increased work proposed. 

I am advised that the Cuban legations in Madrid, Paris, and Don- 
don have, attached to them, vice consuls, who report at fixed times on 
the commercial situation of the countries to which they are accredited, 
their reports being subject to the approval of the chief of mission. 
Cuban diplomatic officers do not correspond w^ith the Cuban consuls 
in foreign countries except on matters of political interest. 

H. G. Squiers. 



182 PROMOTION" OF TRADE INTERESTS. 

CIENTUEGOS. 

Opinions of Consul Baehr. 

Upon my recent return to my post, I found unanswered Department 
circular, '• Promotion of trade interests." In the expression of my 
vieAvs relative to the practicability of the suggestions contained 
therein, I have the honor to state that, with reference to this consular 
district, the local officials have thus far replied with promptness and 
courtesy to my requests for commercial and industrial data, affording 
me full and comprehensive reports upon all subjects under investiga- 
tion. In consular districts where the local officials manifest unwill- 
ingness to do this, I have no doubt that a commercial atache would be 
an extremely useful official, charged, as you say, with the special 
duty of collecting industrial and trade information, and concerning 
whose status no serious question of propriet}^ could arise. All the 
Cuban customs officials and municipal officers with whom I have come 
in contact have, instead of placing restrictions upon my endeavors 
to obtain information, deemed it wise to allow the record of the 
importation and exportation at the several ports, as well as the wants 
and requirements of their coui;itrymen. to be published for the perusal 
of American exporters and importers. 

Max J. Baehr. Consul. 

CiENF-cnEGOS, December 2yl90If.. 



DUTCH WEST INDIES. 
Opinions of Consul Cheney. 

CLKACAO. 

I take the first opportunity of answering circidar, '• Promotion of 
trade interests," a copy of which was received in this office soon after 
m}^ departure for the United States. 



Curacao is so situated that this consulate has had little to do with 
diplomatic officers. A knowledge, however, of what is being done in 
other countries where the consular and diplomatic officers are in close 
touch Avith each other can not be otherwise than helpful and stimu- 
lating to duty, and I welcome it as such. I thoroughly appreciate 
and enter into the purpose to promote the interests of American 
business abroad to the utmost, and desire to do all in my power to 
that end. More than half the postage paid b}' this office is for 
answers to inquiries from American citizens pertaining to business 
and the possibility of extending it. The ascertaining of the facts 
requires no little time; but there is abundant satisfaction in having 
some part in a work which has already produced ver}^ substantial 
results. That more than half the imports into this colony are from 
the United States is undoubtedh^ due mainly to the efforts of my 
predecessors. If that proportion decreases, I mean to know why, and 
to inform the Department. My field is limited ; but, as a rule, what 



PROMOTION OF TRADE INTERESTS. 183 

finds its way here forces its Avay into Venezuela, whose people come 
here so largely to trade, coming with empty and going home with 
full trunks. 

Elias H. Chexey, Consul. 
Curacao, West Indies, Decemher 7, 190 J^. 



HAITI. 

Report from Minister Foioell. 

American Legation, 
Port au Prince^ August 17, WOIi,. 

I have the honor to comply with Department's instructions in its 
circular, '^ Promotion of trade interests." 

Before answering the points requested in the circular, permit me 
to say that if our Government desires to enter into active competition 
for a share in the commerce of the world, or to maintain the effective 
position it has secured, the present action it is about to take is most 
important in more ways than one. 

Though among the youngest in point of service in the diplomatic 
field, I have felt that much more could be done in this direction than 
has been or is being done, without encroaching upon the strictly con- 
sular work, as laid down in the Department's instructions to its con- 
sular officers. In the past, and even in the present, the diplomatic 
work has been somcAvhat circumscribed in this particular. I do not 
mention the fact as a reason for increasing the work of our embassies 
or legations, but I fully believe much more could be done effectively if 
our legations were intrusted with a portion of the work that in the 
past has been considered as belonging strictly to the consular service. 

The position of an embassy or a legation is such as to enable it to 
secure for the Department much valuable information that is now 
lost, or, rather, that does not reach the Department. The diplomatic 
officers are so placed that the}^ can secure information more minutely 
and over a larger field than that occupied by the consuls; they can 
not onh^ supplement a consul's work but the^^ can make it more effect- 
ive, and at the same time open new channels of information that 
would be closed to a consular officer. Such work need in no wise 
interfere with the effective work of many in the consular service. If 
the Department adopted this line of action, I am fully persuaded that 
within a few years our commerce would feel the effects of it, and we 
would occupy a most enviable position as a commercial power. It 
would give an impetus to all our home industries and w^ould carry the 
handicraft of American mechanics into the most remote parts of the 
w^orld. It would do more than this — it Avould open markets for 
American goods that are now closed, and would enable us to cope with 
the keenest competition. 

All that is needed is for the Department to formulate a definite 
plan upon which all can work, providing, of course, Congress appro- 
priates the means to make this work effective. 

As I have stated, the consul's office is local, while the functions of 
our embassies and legations cover a much wider field, and for this rea- 
son thev could secure data that w^ould be most useful to both our 



184 PEOMOTION OF TRADE INTERESTS. 

Government and our commercial interests. This information com- 
ing from the embassies or legations and being accurate, the Depart- 
ment could make immediate use of it, and our various commercial 
interests would feel the benefit. A'^^iile our consular service has; 
achieved wonderful results in the past fcAv ^^ears, there remains much 
to be accomplished in order to obtain the full measure of profit to all 
interests. 

I have the honor to reply to the Department's inquiries as follows : 

1. It will be practicable for this legation, if consular officers are 
instructed to forward their reports to it regarding any matter that 
the Department desires information upon, to supplement such infor- 
mation according to the lines laid down. 

2. (a) At present, no. (h) I believe this cooperation could be 
easily secured without friction between the tAvo services, (c) This 
Government has no commercial or industrial attaches, (d) I do not 
think it advisable, at the inception of this service, that an attache be 
named in connection Avith this legation. This work can be done by 
the present representative; but this statement should not be con- 
sidered as binding upon his successor, who might hold a different 
view. What I think might be required would be the addition of a 
clerk to our present force, as, to make this work effective, we should 
open a new set of books for recording data as we receive it, as well as 
all reports that might emanate from this legation. If the Depart- 
ment required someone to travel through the various sections of the 
Republic to collect data upon a given subject, an attache would 
possibly be needed, but, as I have stated, I think the work can be 
accomplished without one. 

3. None, except as stated in 2 (d). 

W.F.Powell. 



SANTO DOMI]^fGO. 

Rei?ovt from Minister Dawson. 

American Legation, 
Santo Domingo^ August 20, 190 1^. 

ReplAdng to 5"0ur circular of July 29, in regard to cooperation be- 
tween the dij^lomatic and consular services in collecting commercial 
information, I have to say that our minister here, being also consul- 
general, the plan outlined could be easily put into practice in this 
country. 

Answering j^our several questions specifically, I would say that it 
would be practicable and, I think, advantageous for this legation to 
transmit the particular inquiries and instructions of the Department 
in regard to commercial information to the consular officers, and to 
annotate them in the mode indicated. At present, there is no such 
cooperation. 

No foreign government has any commercial or industrial atta'ches 
in this Republic. I do not think a commercial attache at this legation 
necessary at the present time. An ambitious and intelligent clerk 
would be sufficient, under the direction of the minister, and he would 
have time to aid in other matters. 

Additional assistance to the extent of $600 a year Avould be needed 



PROMOTION OF TRADE INTERESTS. 185 

to enable me to carr}^ into effect the programme described and to give 
proper attention to the preparation and revision of commercial 
rejDorts. I now have bnt one clerk for both legation and consulate- 
general, and it will be difficult for the two of us to keep ahead of the 
work already in hand. He receives $500 a year from the fund for 
clerks at consulates and $400 from the legation contingent fund. 
If the present consular allowance of $500 Avere increased to $900, one 
clerk could be employed with it who w^ould devote his whole time to 
consular and commercial report Avork. Two hundred dollars added 
to the contingent allowance for the legation would make $600 avail- 
able for another clerk, who would attend exclusively to legation copy- 
ing as well as the translations, which at present I make myself. A 
man competent for such work could, I think, be obtained for $600 
a year. 

My experience in Santo Domingo has been too short to enable me to 
base upon it any suggestons which would be likely to further the 
general object sought. However, during my seven years' service as 
legation secretary in Brazil, where circumstances especially drew my 
attention to tariff and commercial matters, I made observations which 
may be of some value to the Department. 

Most excellent work in the preparation of commercial reports was 
done there by energetic, intelligent, and careful consuls. An impor- 
tant stimulus I believe to have been a desire to recommend them- 
selA'es to the Department. In my judgment, the intervention of a 
legation should not be in a form calculated to weaken the conviction 
that the preparation of good reports may advance the writer's stand- 
ing and bring him into closer relations with his responsible chiefs at 
AYashington, in whose hands lies, or should lie, his professional 
future. Further, I am convinced that a system of efficiency reports, 
like those in our Navy, made by both the immediate and indirect 
superiors of every man employed in the consular and diplomatic 
services, would be beneficial in many respects, and especially so in 
securing a systematic and general preparation of commercial infor- 
mation. 

It sometimes happens that a consul sends in among his early reports 
some which, on account of faidts in form and substance, are not 
printed. He becomes discouraged, and so, wdiatever real ca])acity 
he has is never developed, and the knowledge he is constantly absorb- 
ing is useless to American commerce. A minister, close at hand, with 
opportunities to knoAv the consul personally, and enabled by his 
familiarity with local affairs to indicate specific lines of inquiry, 
might be able to utilize his capacities. 

The same consideration would apply in the case of an indifferent 
consul. A careless consul sometimes makes erroneous and misleading 
statements in his reports which, in the nature of things, can not be 
detected except by a person expert in regard to that particular 
country. I'or example, he may misunderstand tariff legislation, and 
report an increase in customs duties incorrectly. Such mistakes 
necessarily escape Department oflicials, and therefore, Avrong infor- 
mation is published Avhich could easily have been detected had the 
report passed through the hands of a competent minister on the 
ground. 

Translations of changes in tariff' laws, customs regulations, negotia- 
tions of national loans, and other actions of the central government 



186 FEOMOTION OF TEADE INTERESTS. 

affecting commerce, a.re sometimes never transmitted, or the labor of 
preparing" them is unriecessarily duplicated by ministers and consuls, 
acting independently. The ministers or consuls-general should be 
held direct!}^ responsible for such matters. 

The German, Italian, and Austrian legations in Brazil took meas- 
ures to be constantly informed about commercial matters affecting 
their respective countries, and made frequent and exhaustive reports. 
The latter two legations, at least, exercised an unremitting control 
over the correspondence with their consulates about such matters. 

T. C. Dawson. 



SOUTH AMERICA. 
ARGENTINE REPUBLIC. 

Report from Minister Becmpre. 

American Legation, 
Buenos Ayres^ October 6\ lOOJi. 

Referring to the Department's circular instruction of July 29 last, 
concerning the " Promotion of trade interests," I have the honor to 
state as my frank and candid opinion, based upon experience in both 
the consular and diplomatic services and upon mature deliberation, 
that I do not believe the proposed plan of supervision and revision by 
diplomatic officers of the reports of consular officers to be feasible or 
likel}^ to give satisfaction. 

I am thorough^ of the opinion that revision and expurgation are 
essential and necessary in many of the consular reports, and super- 
vision of some sort or other advisable in all, for I have had complaints 
made to me by our merchants that our consular reports are often 
untrustworthy, and I am aware that, in a great many instances, our 
merchants and manufacturers have been induced by inaccurate and 
misleading statements to send their agents at considerable expense to 
foreign countries only to discover that the opportunities reported by 
the consul did not exist or was wholly overestimated. Our manufac- 
turers are every day looking for new and better markets abroad, our 
home markets becoming every year more and more sated with our 
products; in other words, we have become an exporting country. 
Consequently every branch of trade is calling out for accurate and 
reliable information. And what is more natural than that they 
should look to the Government and to the Government's agents resi- 
dent in the foreign centers of trade to supply their need ? Our home 
Departments, as for instance the Department of Agriculture, are 
doing a wonderful work in the gathering and dissemination of accu- 
rate statistics and information in all the branches under their respect- 
ive supervision. Their reports are everywhere sought abroad, and 
their statements accepted with a flattering readiness and eagerness. 
Our own citizens at home have every right, then, it seems to me, to 
expect from our foreign trade representatives reports and statements 
upon which they can rely with at least the same implicit faith that 
foreigners are putting in the statements of our home bureaus. And I 
sincerely believe that this thing can be accomplished and that, too, 



PK(^MOTION OF TRADE INTERESTS. 187 

AYith the existing — though perhaps modified and improved — system, 
without the multiplication of offices and the dividing and subdividing 
of authority by the addition of commercial attaches or the confusion 
of two properly distinct services. 

My reasons for want of faith in the wisdom of the plan proposed 
are tVo : First, to make the consular officer subordinate to the diplo- 
matic officer in the matter of trade reports would tend, nay more, 
would be sure to destroy the spirit of initiative and emulation in the 
former — that spirit that is the secret of all the wonders of American 
civilization and attainment that marks the w^onderful contrast be- 
tween the Old AYorld and the New World civilizations ; that all our 
institutions foster and that makes our young men, while still in the 
prime of life, old in ingenuity and attainment. The need of the hour 
is, then, to stimulate rather than to repress and destroy this spirit of 
initiative in our consuls. 

It is a known fact that our consuls are of very different caliber, 
character, and qualifications for their offices, and I firmly believe that 
the work of the individual takes its character from the character and 
fitness of the man. The unreliability or insufficiency of some consular 
report is due, in my opinion, to individual characteristics, rather 
than to inability to obtain information, or to limitation by reason of 
lack of diplomatic status. My experience is that all the bureaus of 
government having to do with statistical or commercial affairs are 
always 0]3en to consular officers on grounds of international and 
personal courtesy, and that instances where diplomatic intervention 
is necessary to secure first-hand information are very rare. On many 
such rare occasion, when the consular officer can not reach the source 
of official information, a diplomatic officer would always stand ready 
to lend his assistance. 

My second reason is that I so thoroughly believe that the sphere of 
the diplomatic officer and that of the consular officer are two distinct 
and different spheres and should be kept so. The consul has to do 
Avith trade, the diplomat Avith statecraft; the consul is frequently 
a merchant, the diplomat should be a statesman. The consul deals, 
in the daily routine of his office, Avith the concrete facts and figures of 
commerce: the diplomat Avith the A^'arious situations arising between 
friendly or jealous and hostile peoples, Avith comity of nations and 
international law, Avitli equity and the theory of government. These 
spheres are absolute and distinct; they should not be confused, nor 
can fitness for the one imply in any sense fitness or capacity for the 
other. 

Xot only are the tAvo spheres distinct and the one officer unqualified 
for the duties of the other, but the su])ervisio]i by the one of the duties 
that are alone Avithin the province of the other is impracticable as 
calculated to lead to friction and hard feelings. And in the case of 
the diplomatic officer, he could not be giA^en CA^en supervisory poAver 
OA^er the trade reports of tlie consul, proA^ded this Avere fixed by laAv 
as, and publicly knoAvn to be, a part of his functions, without its de- 
tracting someAvhat from his status as the representatiA^e of his goA'-ern- 
ment before a foreign gOA^ernment. To put it concretely, if it Avere a 
part of my duties to go about among the people of the country in 
which I am located for the purpose of collecting trade information, 
Avith the object either of making or of super A'ising reports, my stand- 
ino- in this communitA^ would ineAdtablv suffer. 



188 PROMOTION OF TRADE INTERESTS. •• 

The place, then, in my opinion, to vest the needed supervisory 
power is within the consular service itself. I beg leave to venture 
the statement that if our consuls were all made subordinates to one 
or other consul-general: were this consul-general — and his subordi- 
nates as well — carefully selected with a view only to his fitness and 
his uprightness and disinterestedness of character; were his duties 
defined primarily as those of supervision and of study of and report 
on trade conditions, the routine of office work being delegated to a 
proper inferior — under these conditions our consular service would 
take a still higher rank among those of other nations and our consular 
reports assum a better and more reliable character. The considera- 
tion extended to consuls-general in the capitals to which I have been 
accredited is such that their personal status and consequent facility 
for collecting industrial and trade information preclude the necessity 
of sending commercial attaches, provided the same care is exercised 
in selecting the consul-general as would be in selecting the commercial 
attache. The responsibility being thus within the appropriate serv- 
ice, the supervision could be exercised without the friction that would 
necessarily arise in case of supervision by a diplomatic officer. The 
consul-general, a consul's own proper superior, to whom he is answer- 
able for all his acts, could criticise and revise the work of the consul 
and outline future work for him with impunity; whereas if this 
Avere done by a diplomatic officer it would lead to friction, and a con- 
sular officer, nursing a grievance growing out of such relations, would 
thereafter be less inclined to exertion in preparing reports, and being 
answerable to no immediate superior, would lose all initiative and 
content himself with his routine work. In the three different coun- 
tries to which I have been accredited, the British consuls make all 
their reports to or through the British legations. I am quite certain 
that this system is not satisfactory tt) the consular officers, and am con- 
vinced that the general results prove our present system to be better 
than theirs. Such improvements as I have outlined above would 
leave no room for question as to this superiority. 

If, howcAi^r, it is decided to utilize the diplomatic service in col- 
lecting commercial information and in trade expansion, I believe it 
should be along more independent lines than those outlined in the 
Department's circular ; a cooperation, if you please, with the consular 
service; but with a responsibility onl}^ for the work emanating from 
its immediate instructions. 

I would thoroughly approve of giving the first secretaries of 
legation or embassy, in the countries where extra eft'ort is deemed 
advisable, something of the status of commercial attaches, doubling 
for this purpose their salaries — for they are most pitiabl}^ underpaid 
at present, and nothing less than the doubling of their salaries would 
be a competent remuneration — and giving them the necessary allow- 
ances for extra clerk hire and other expenses. Then, I believe it 
would be practicable for the Department to send all instructions for 
particular information or special inquiries directly to them, and to 
authorize them to prepare or have prepared the desired reports.' In 
this case it should be part of the consuls' duties, and they should be 
especially instructed to hold themselves in readiness and to exert 
themselves to put at the disposal of the legations and embassies all 
the information at their command, and to prepare answers to all the 
questions that might be submitted to them by the diplomatic officers 



PEOMOTION OF TRADE INTERESTS. 189 

concerning* matters in their respective' jurisdictions; these answers 
not to be treated as independent reports, bnt to be used as informa- 
tion only. In case this plan were adopted, I would say that the 
remuneration of the secretar}^ of legation at this place, inclusive of 
all allowances for extra clerk hire and additional expenses, should be 
$5,000 per annum, and not less. 

In answer to the specific numbered questions of the last part of the 
Deparment's circular, I have the honor to state that, in my opinion, 
for the reasons given above, it would not be practicable, although 
entirely possible, or advisable for me to transmit the Department's 
instructions for particular inquiries to the consular officers in this 
country. Likewise, revision and annotation by me of their reports 
would, for reasons adduced above, seem to me ill advised. I do not 
think any precautions of the Department or this legation could pre- 
vent the inevitable friction that would arise, or preserve the spirit of 
initiative of the consular officers, under such circumstances. 

There is no such cooperation between the diplomatic and consular 
services of this coioitry. The Argentine Republic has one commer- 
cial attache, at Rome. He is connected with the legation, making all 
his reports through the minister, and ranks below first secretary. 
He receives $3,000 gold per annum. I do not believe, after conver- 
sation with the British and German ministers and with officials of 
the Argentine Government, that the system of commercial attaches is 
considered a success. 

To carry the programme described under question 1 of the circular 
into effect, about $1,200 should be appropriated for extra clerk hire 
and other expenses. And, as the burden of the additional work 
would fall upon the secretary of legation, and he is already inade- 
quately paid, I think his salary should be doubled. 
* In expressing the above opinion, that the diplomatic and consular 
services are and should remain two distinct services, so far as the 
distinctive work of each is concerned, I do not mean to say that the 
general supervision of the latter by the former, which has always 
existed, should cease. On the contrary, I consider the consular service 
subordinate to the diplomatic service, and a general accountability to 
it necessary. And I feel it my duty to avail myself of this opportu- 
nity to say that I believe that our consuls should not be allowed to 
report directly to the Department in matters that are solely and 
alone within the province of the embassies and legations, such as 
relations of one country to another, general political relations within 
a country, etc. ; in short, in any matters other than those of commerce 
and trade relations. Here, I sincerely believe, the province of the 
consul ceases. All matters, other than commercial and industrial, 
should be reported by the consul to the diplomatic agent in the coun- 
try to which he is accredited, and by him to the home government: 
otherwise the diplomatic officers might be seriously embarrassed by 
the consuls reporting directly matters that are wholly and alone 
within the province of the minister. 

This legation is thoroughly interested in the extension of American 
trade, and to that end has, on its own initiative, been reporting to the 
Department all matters that seemed to it to deserve its attention or 
calculated to interest the American merchant and manufacurer. 
Whatever action the Department may see fit to take in regard to the 
matter discussed in its circular and in this answer, this legation will 



190 PROMOTION OF TRADE INTERESTS. 

continue to show its interest b}' such vokmtary contributions, and will 
always hold itself ready to serve, to the best of its abilit}^ and so far 
as other duties admit, all the interests commercial of the American 
people. With their best interests at heart and my duty to my Gov- 
ernment clearty in view, I have the honor to submit this franlv 
response to the Department's circular inquiries. 

A. M. Beaupre. 



Opinions of ConHidar Oiflcers. 

BUENOS AYRES. 

I have the honor to acknowledge receipt of circular, " Promotion of 
trade interests.'' in which I am requested for an expression of my 
views. I do not hesitate to say that I do not think it practicable 
that instructions from the Department of State to the consular 
department should go through the ministers; neither do I think it 
practicable for consular reports to go through the hands of the minis- 
ters for correction on subjects upon which the ministers know little 
or nothing. I think that, in most cases, the ministers and consuls have 
very little to do with each other, and should the Department of State 
decide that these consular reports should be transmitted through the 
ministers, there will be friction which will be damaging to trade, 
instead of promoting it. 

D. Mayer, C onsul- General. 

Buenos Ayres, October 21^ WOJf. 



KOSAKIO. 



I have the honor to acknowledge the receij)t of circular, " Promo- 
tion of trade interests," and asking for my views. 

In common with all Americans who hold their countrj^'s com- 
mercial leadership to be of the greatest national importance I have 
taken deep interest in this subject, and during my consular career 
have, to the best of my ability, Avorked for the promotion of such 
leadership. From ni}^ point of view, I have arrived at some decided 
views and conclusions which, under this comprehensive instruction, 
I shall undertake to express as briefly as possible. I shall not, reply 
to the questions in detail, as propounded to the diplomatic officers, 
but treat the subject as it applies to my district. 

My consular district embraces eight provinces (States) and four 
gobernaciones (territories) of the north and northeast of the Repub- 
lic, having a population almost exactly half of the entire Eepublic 
and a productiveness more than equal to the balance. My consular 
office at Rosario is in the southeast corner of this vast territor}^ and 
there is railway communication with but a limited portion of my 
district, so that intercourse with the remoter portions is slow 'and 
uncertain. Every portion of my district teems with wealth, much 
of it, especially , in the mining and timber regions, as yet undevel- 
oped; but when the develoj)ing power is brought to bear the result 
will be the enrichment of the persons who engage practically and 
energetically in that Avork. The people Avho inhabit this region, both 



•PEOMOTION OF TRADE INTERESTS. 191 

the near and the remote parts, are not, generall}^ speaking, producers, 
except through the agricuhnral and pastoral industries, which are 
followed as yet in anything but a thoroughly productive manner. 

The people must, therefore, be fed and clothed and housed from 
the products imported from foreign lands ; their fields must be tilled, 
and their crops harvested and carried to market with appliances 
from someAvhere abroad. With their little labor and their inefficient 
management, so rich is their soil that they still have for market 
enough and to spare to bring to their coffers gold for all their wants, 
and this wealth goes to that nation's representatives who can supply 
their wants to suit their peculiar tastes and will take the trouble to 
furnish them as required. 

Of the nations whose representatives make special effort to do this, 
Germany stands clearly in the front rank, with England, France, and 
Italy following more or less closely, while, I regret to say, our coun- 
try, as yet, occupies an inconspicuous place. There are numerous 
reasons for this. First of all, the most successful of these caterers to 
the Argentine wants send personal representatives, who go to all the 
principal towns and villages, speaking the language of the country, 
and never failing to book extensive orders with the most reliable 
wholesale dealers in these places, taking care to take orders only 
from merchants of undoubted financial reliability, to whom they 
freely give long credits of six, twelve, and eighteen months. One of 
these agents told me that in ten years their house had not lost a dollar 
in bad debts in the Argentine. This is in one line, and the same holds 
good in all other lines: and this success follows such persistent per- 
sonal effort, even when the goods are of an inferior quality and the 
prices are but little less than those of much better grades from other 
sources. 

There is one line alone in which America leads all the rest, in qual- 
ity, effectiveness, and sales, and that is in agricultural implements. 
The}^ are universally recognized as the best, and the large importers 
and dealers are compelled to buy them in great and increasing quan- 
tities, because they are the best, and notwithstanding the discrimina- 
tion against them in the matter of terms of payment. One dealer 
told me that it was not uncommon for him to pay a draft for thou- 
sands of dollars for American machinery before he had seen a piece 
of it. ^^T;iile this shows a confidence in our manufacturers by the 
dealers, it shows, in reverse, a lack of it in the dealer by the manufac- 
turers, and, therefore, the dealer is tempted to substitute another 
machine when he can, regardless of quality, and, I submit, this is 
subversive of our trade interests. 

Now there should be some way to smooth out, to a very considerable 
degree, these rough places. There should, if possible, be some closer 
bond between our American merchants and manufacturers and the 
consumers and their representative middlemen in this cou.ntry, and 
to thereby increase and strengthen our trade here. I presume this is 
the problem to be solved. How can it be done ? 

Primarily, I should sa}^, by those people in each line in the United 
States forming a " combine " and securing, at a liberal salary and a 
liberal allowance for daily expenses, a man who will travel, step by 
step, from city to city (or town) all up and down the land — a serious 
man (to use a native idiom) — speaking the language, with practical 



192 PROMOTIOl^ OF TRADE USTTERESTS. 

familiarity with the line of goods he represents, and with ability to 
engage to make for the purchasers such goods as they want and put 
them on their counters in such shapes as they are accustomed to, and 
to sell them good, fresh articles and not put off in the South American 
market any old shopworn remnants, and to be shrewd enough to 
ascertain the financial standing of those to whom they sell, and to be 
liberal in their time as Avell as prices. ^Yith such continued and per- 
sistent eifort, Argentine trade, in any line, may be won for America, 
for back of all sentiment American goods, other things being equal, 
are liked better than any others. A corporal's guard of such men, 
representing the leading lines of goods, meats, dry goods, canned 
goods, and f ancj^ groceries, boots and shoes, hats and caps, underwear, 
rubber goods, etc., would undoubtedly work a revolution in American 
trade here, and a revelation to our European competitors. A great 
reason for the large consumption and adoption of American farm 
machinery in this district is that those manufacturers are entering 
systematically on their sales, and work much on the lines I suggest, 
with results that are doubtless in the highest degree satisfactory. So 
much for strict!}^ mercantile work in the development of trade. 

As to how such work might best be furthered by official agency of 
diplomatic officers and consuls, permit me first to point out the dif- 
ficulties under which a consular officer, situated as I am, labors in 
endeavoring to discharge such duties : As I have indicated, my office 
is in one corner of a large district, and I am compelled to be there 
during the business hours of each business day in the year, and I am 
not able to absent mj^self for even twenty-four hours to visit any out- 
lying towns or villages or any of the splendid farms, of which I only 
learn indirectly, but my time is exclusively given to work that could 
well be done by a competent clerk. If one were allowed me I could 
have some time in which to gather the facts that I am constantly 
expected to furnish, by the multitudinous correspondents, regarding 
addresses of firms engaged in their several lines, the prospects of 
trade, and a thousand and one particulars that could only be gathered, 
if at all, from the proprietor, whose hours at the office are the same as 
mine in this. There is no city director}^ for Eosario, else this part of 
my correspondence would be facilitated. AYhen, however, I am 
requested to name the principal firms in my consular district in a 
special line, which is a quite usual request, you may imagine with 
what a task I am confronted. 

A way, and a feasible way, in mj opinion, to ascertain many of the 
facts requested of consuls, is, as suggested by your circular, to have at 
our legation a '' commercial attache," a part of whose business it 
wouldbe to gather commercial data of all sorts and in all lines, and 
on application by the consuls, furnish them with the bare figures, on 
which they could base a courteous and satisfactory reply. This 
attache, armed with his diplomatic commission, and with the indorse- 
ment of the Argentine Government, could, going from place to place 
throughout the EeiDublic, satisfy himself of the commercial condi- 
tions at each place, which he could hold for the information of iiot 
only the consuls of the respective districts, but of the representatives 
of American houses taking orders throughout the country. He would 
also have direct and easy access to all statistical information in the 
different departments of this Government, which would, on request. 



PROMOTION OF TRADE INTERESTS. 193 

be transmitted by him to such consuls as desired to avail themselves 
of it for their reports. Certainly this position, ably and properly 
filled, would be no sinecure, for, in addition to the above line of work, 
he could, and should, ascertain throughout the Republic possible or 
prospective developments of the natural resource^; of the country, 
keep himself abreast of all new enterprises in process of development, 
in order that interested firms in the States could be in early with 
bids for supplies of machinery, equipments, etc. ; note specifically all 
improvements of lines of commerce, and be the trusted officer of 
our Government, fulh^ equipped with information, to whom possible 
investors might confidently look for reliable data. 

This is, in my opinion, the practical plan to promote that which we 
all desire — our trade interests in Argentina. 

AVith regard to the cooperation of the consular with the diplomatic 
officers, I will answer for this office that, as long as it is under my 
control, I shall work willingly and to the best of my ability for the 
furtherance of this object. I will do so Avith the brightest hopes of 
the success of the effort which the Department seems to have in mind. 

James M. Ayers, Oonsid. 

EosAKio, September 17^ 1901^. 



BOLIVIA. 

Report from Minister Sorsty. 

LEGATIOrT OF THE UnITED S TAXES, 

La Pm^ BoJAvici, Septeinher 15^ 190J}.. 

Referring to the Department's circular of July 29, with respect to 
the " Promotion of trade interests,' ' I have the honor to report : 

First. In my opinion it would.be entirely practicable, as well as 
highly desirable, to transmit to consular officers instructions from the 
Department of State from time to time for particular inquiries; to 
make in the dispatches of transmission such suggestions as maj^ be 
pertinent to facilitate the inquiry, or to make it more comprehensive ; 
to revise their reports, and to furnish supplementary information 
when a report or series of reports appeared to be defective or mis- 
leading. 

Second. There is no such cooperation as that outlined in the circu- 
lar between the diplomatic and consular officers of Bolivia, nor does 
the Bolivian diplomatic and consular service provide for commercial 
or industrial attaches. 

In my judgment, such attaches would be of material advantage to 
American commerce. 

Third, l^o special additional increase in the personnel of this lega- 
tion would be required to intelli>gently and effectively carr}^ out the 
programme indicated by the Department's circular. An addition of 
$500 per annum to the present contingent expense allowance for the 
item of clerk hire and the designation of the clerk as " attache " 
is all that would be required. 

William B. Sorsby. 
H. Doc. 245, 58-3 13 



194 PROMOTION OF TRADE INTERESTS. 

BRAZIL. 

Refort from Minister Tliortifson. 

A copy of your circular letter to diplomatic officers, under date of 
July 29, has been sent to me here. In answering your questions I 
respectfully submit : 

1. All that is suggested could be done by the minister in Brazil, 
without embarrassment to the minister or his position. 

2. There is, at this time, no cooperation between the legation in 
Brazil and the consular service, except occasional necessary letters. 

3. No additional assistance would be necessary if the legation has 
an efficient and Avilling secretar}^ 

I think m}^ onh^ suggestion in entering upon this new plan of car- 
ing for important commercial matters, if it is finally decided to 
make a change, is great care in selecting consuls, especially consuls- 
general — care that they should be worthy and efficient. All that 
your letter suggests as desirable could be done efficiently, satisfac- 
torily, and without add^d expense I would think, not only in Brazil, 
but in all countries, unless a commercial agent is thought best, in 
which event, the added expense of this one man would be all that is 
necessary. 

It might be desirable to make the consul-general to a greater degree 
than now responsible to the minister. It would seem desirable also 
that a commercial agent, when one is assigned to any country, should 
have an office with the consul-general and report to him. 

D. E. Thompson. 



Opinions of Vice Consul- General. 

Replying to the Department's circular of August 4, requesting an 
expression of views on the circular " Promotion of trade interests," 
under date of July 29, addressed to the diplomatic officers of the 
United States, I have the honor to make the following observations : 

The greatest obstacle to the satisfactory collection of trade infor- 
mation is not secretiveness on the part of the authorities who, in 
Brazil, are, with rare exception, ready to extend their courtesies to 
ministers and consuls without distinction, but the lack of a uniform 
system of official published statistics. Although the Brazilian statis- 
tical department has made rapid strides in the last four years, large 
gaps still exist in the system, which put consuls who are called upon 
to report on some one branch of industry to a severe test. In such 
cases the consul must fall back upon primarj^ sources, and his success 
depends upon the extent of his friendly relations with some promi- 
nent merchant, manufacturer, or local head of a government tribu- 
tary branch. In gathering information of a still more detailed 
character, such as is demanded for replying to the very numerous 
letters from American manufacturers who are interested^ in but one 
line, the ability of the consul is limited by his office force. If he is 
without some person whom he can send during business hours to 

a Forwarded from Lincoln, Nebr., November 11, 1904, Minister Tbompson 
being absent from his post, on leave. 



PROMOTION OF TRADE INTERESTS. 196 

interview personally a large number of representative importers or 
exporters, he is helpless. 

It will be seen that, for the above classes of information, nothing 
is to be aained by making the legation the channel of inquiries, nor 
do I think the Department's circular presupposes such a change. 

On the other hand, information as to the economic conditions in 
the larger sense, such as might be applied for through the legation, is 
being published as fast and as exhaustively as the Government can 
collect and organize data. Furthermore, consuls are, in general, sub- 
scribers to the official daily w^hich gives verbatim the discussion of 
almost every project in Congress, through every stage, until it 
becomes law. Consequently such information as would be obtained 
through application by the legation can usually be found in some 
printed form. 

The legation depends upon its legitimate prestige for obtaining 
information, and its inquiries are carried on with a necessary for- 
mality which, in many cases, makes dispatch impossible. In Brazil, 
friendship will invariably do more than authority, and a call on an 
acquaintance in a government office will often get information in an 
hour which it would take a month to get through correspondence 
which follows the rounds of red tape. 

The submitting of commercial reports from consulates to the lega- 
tion offers a doubtful advantage at best. In a country of such vast 
distances as Brazil, the minister is dependent on the consuls for his 
knowledge of their several districts. No tours of inspection can qual- 
ify him to rectify the impressions of a resident on local conditions 
and issues, and in the many cases wdiere the Department calls for 
simultaneous reports from the different districts, reference to or 
through the legation, owing to the sporadic and dilatory mail service 
and the intervals of thousands of miles, would cost a delay of from 
one to two months, in itself a disadvantage which would eliminate 
probable gains. 

Leaving negative considerations, the elements which seem most 
susceptible to development in securing for the United States an un- 
rivalled instrument of trade expansion in its foreign service are — 
the employment of officers capable of winning personal recognition 
and the enlargement of the consular subforce. 

A consul who will take the trouble to make friends with the Brazil- 
ians will soon find that the antagonism so constantly fed in little ways 
by a portion of the press is eliminated in personal contact. As noted 
above, this relation is far more effective in gathering information 
than authority, and for two reasons: First, it avoids official formal- 
ity ; second, it allows of dispatch, thoroughness, and a real knowledge 
of the condition of things as opposed to the officially announced or 
nominal state of any given matter. The line drawn between diplo- 
matic and consular prerogatives in this country is so indistinct that a 
consul is rarely, if ever, hampered by a question as to his right to 
make inquiries. 

The inadequacy of the consular subforce in Brazil has been brought 
to the attention of the Department with an insistency which should 
go far to prove the weakness of this point in the service. In the last 
few years, the constant appeals have met with a response, but a 
response so badly proportioned to the growing needs of the several 
districts that the American consular officers, who meet or try to meet 



196 PROMOTION OF TRADE INTERESTS. 

their obligations, have gained the reputation of being the hardest 
worked and poorest paid members of a large consular corps. The 
usual allowance for clerk hire in our consulates is barely enough to 
secure the services of some American temporarity out of a job, who is 
sure to have an offer often at double the wages as soon as he proves 
efficient, or of some second mate left by an American ship. Yet this 
clerk is called upon to speak, read, and write two languages, keep 
books, fill out invoices, bills of health, etc., typewrite reports, and 
interview merchants, or represent the consulate to visitors while the 
consul goes out to gather information. If the clerk can not fill these 
requirements, the consul is forced to spend man}^ hours hammering- 
out his reports on the typewriter or balancing up the daily cash. As 
a result, many important letters from American manufacturers go 
unanswered, and if the facts were Imown, many sins of omission 
would be forgiven the consul whom such circumstances have forced 
to write : " August 10. Replying to your favor of March 6, I am 
sorry to say that the proposed factory to which you refer is already 
built and turning out- shoes." 

The Americans are the onlj^ consuls who subject themselves to 
arduous clerical work, and, if the results have merited the Depart- 
ment's approval, they only go to show that were the several consulates 
equipped with a subforce able to cope with the daily volume of work, 
the misplaced energy of the consular officers, turned to its proper 
channel, could effectively prevent the occurrence of the serious omis- 
sions in reports noted by the Department. 

Salaries paid to the American consuls and the sums allowed them 
for securing clerical aid are a constant su.rprise to those acquainted 
with the compensation and working force of our colleagues. No 
better example can be offered than a statement of the conditions in 
this port. The British consular force here is composed of a consul- 
general, a vice-consul-general, a pro-consul-general, a first clerk, and 
a second clerk. This does not take into account the messenger or 
office porter. Opposed to this force is that of the American office, 
composed of a consul-general and a vice and deputy consul-general, 
who is also clerk. There being no regular remuneration in the offices 
of vice-consul-general and deputj^ consul-general in our service, as 
there is in the British, it is very hard to get anj^one to assume these 
responsibilities, even when it is understood that no work is required 
of him but the signing of his name. It is a well-known fact that the 
commercial relations of Rio de Janeiro with the United States are 
greater than those of any other port in the whole of South America, 
yet the equipment that our Government offers this office is such 
that, during the temporar}^ absence of one officer through sickness or 
leave, the other is called upon to fill out invoices at the rate of over a 
thousand a year, keep strict and complicated accounts, compile such 
reports as do not require absence from the consulate during office 
hours, do his own typewriting, hear and act on constant* complaints 
of sailors, answer local communications written in three or four lan- 
guages, legalize signatures, make out powers of attorney, fufnish 
information to frequent callers, and snatch a few moments, when pos- 
sible, to reply to a voluminous, and sometimes urgent, correspondence. 
Even if funds allowed, he could not employ for a short period a 
helper capable of aiding him in duties so varied and requiring some 
experience. 



PROMOTION OF TRADE INTERESTS. 197 

The part of the work which sirfFers most is the heavy correspond- 
ence from American firms, hiwyers, etc., Avhich. according to Consular 
Regulations, is left for such time as is not allotted to other duties. 
Yet these correspondents would be willing to pay, and pay well, out 
of their 0Y\'n pockets if only they coidd be assured prompt attention. 
Many of these letters seeking agents, referring to estates "in liquida- 
tion, inquiring as to property claimed by Americans, determining 
decease of heirs, etc., are of vital importance to the senders: but 
although this may be realized by the consul, he is often helpless, as 
such letters require investigation that can not be carried on from 
the office chair. 

To the vast number of Americans whose interests are constantly 
growing in foreign countries, a general strengthening of the consular 
force, such as would enable it to take up these numerous threads of 
priA^ate enterprise and make them the forerunners of a general com- 
mercial expansion avouIcI be a legitimate and praise Avorthy object of 
official expenditure. There is no country Avhich at present has greater 
need of or could better afford efficient foreign representation than 
ours, and the importance of the A^ast, semideA^eloped field of South 
America, especial!}^ of Brazil, Avhose needs cry out for American man- 
ufactures of CA^ery description, Avell deserA^e generous and immediate 
attention. 

George E. Chamberlain, 
Vice and Deputy Consul -General. 

Eio DE Janeiro, September 16, 190. '4. 



Opinions of Consular Officers. 

BAHIA. 

The ideas expressed by the Department in circular " Promotion 
of trade interests," contains many good points. 

In discussing the matter in so far as Brazil is concerned, [ can 
see that a system as outlined and Avitli a proper commercial, or 
rather statistical man in charge, would be a benefit, in that statisti- 
cal information could be arranged so as to be up to date instead of 
being from tAvo to three years behind, as is noAv the case. 

The plans as proposed present tAvo phases. On the one hand, in a 
country as large as this and differing so materially in each consular 
district, and cA^en in each section of a district, it avouIcI be next to 
impossible for anyone stationed at the capital to be thoroughly cogni- 
zant of the conditions of the different districts and to be able to indi- 
cate or correct errors of fact or judgment any better than could be 
done at the Department had the information been sent direct. Eeli- 
ance Avould still have to be placed on the different consuls to furnish 
the detailed information as to their respective districts, while the 
roundabout Avay suggested Avould cause much time to be lost because 
of the irregular mail and transportation service. It is a fact that 
from some places in Brazil the information could reach the United 
States more quickly than it could get to liio de Janeiro, from Avhich it 
Avould require another long journey to reach the Department. 

On the other hand, if our reports Avere first submitted to our diplo- 



198 PROMOTION OF TRADE INTERESTS. 

matic representative at the capital, it would give him a more compre- 
hensive idea as to the different districts, and, as stated by the Depart- 
ment, would enable him to call attention to such things as, in his judg- 
ment, might cause offense or embarrass him in his diplomatic capac- 
ity. If after all the full reports of the consuls are to be finally sub- 
mitted to the Department and there passed on in the light of the 
annotations, with the facts of the prior paragraph in mind, and leav- 
ing aside the loss of time, it would seem that some good might come 
of such a system. 

I take it that the conditions in Brazil, at least in so far as this dis- 
trict is concerned, are different from those existing in most foreign 
countries. I am aided by city, state, and federal representatives in 
gathering such information as T may wish, and it is within their 
power to furnish, whether requested officially by letter or obtained in 
person. Our minister at Rio de Janeiro could procure no informa- 
tion here which would not be given as freely to me, upon request ; in 
fact, I am frequently allowed to see official information which most 
likely he could not obtain. How much of the personal equation 
enters into this fact I do not know. What I do know is that I am 
able to get more information than any other consul here located, 
doubtless because I have studied the matter sufficiently to know where 
and how to get it and go to the proper source. 

I should think that collection of trade information at the legation 
vfould necessitate unnecessary Avork which could better be performed 
by the consul-general and his staff, who should be more in touch with 
commercial matters. The fact that the minister is on the ground to 
request such official information as may be desired would seem lo me 
to be sufficient to overcome such difficulties as might arise. My solu- 
tion of the problem would be the appointment of salaried vice-consuls 
at the more important centers, thus relie^'ing the consuls of the purely 
routine work which now takes U]) the greater part of their time. 
This would give time for the study of trade and trade relations. 

Another solution would be the assigning of the commercial expert 
to the consulate, unless his attachment to the diplomatic branch of the 
service would give him diplomatic privileges ; that is, power to 
request such information as he may desire vfithout the aid or assist- 
ance of the minister or ambassador, and even then it would seem that 
he shouldj in reality, work vvdth the consulate. 



Bahia, Novemher 12. 190. L 



H. W. FuKNiss, Consul. 



PAKA. 



I have the honor to acknowledge receipt of circular, " Promotion of 
trade interests." 

This circular evidently has in contemplation conditions obtaining 
in the older European countries. That a modification of the plan 
outlined would prove valuable and effective in the Latin- American 
republics of Central and'South America is highly probable, but modi- 
fication would be necessar}^ The value of statistical and other trade 
information diminishes in proportion to the delay incurred in making 
it public. It would seem likely, therefore, that a strict adherence to 
the proposed plan that consular officers should send their reports 



PROMOTION OF TRADE INTERESTS. 199 

through the legation in order to permit of revision, annotation, etc., 
would cause such great delay as to lower the value of the final report. 
I doubt whether the supposed greater accuracy of the report would 
compensate for the waste of time. Take, for example, this consul- 
ate : It takes longer for a letter to reach the legation in Rio cle Jan- 
eiro than it does to reach the Department of State. The average time 
may be taken at three weeks, at least one week for revision and a 
month more for the revised report to reach the Department; as 
against about eighteen days if the report should be sent direct. 

In these countries, too, I var^^ much doubt if the diplomatic officer 
would really be able to " indicate errors of fact or judgment," par- 
ticularly the former. Take this country for example, although I 
believe the argument is as applicable to Uruguay or Honduras: The 
trade, the products, the social and business conditions of Amazonas 
and Para are as distinct from those in Minas Geraes, and both from 
those in the southern coffee-producing States, as are similar condi- 
tions in France, Italy, and India. My own consular jurisdiction 
covers a territory that extends for thousands of miles, nearly to the 
foot of the Andes. With a very good working command of the lan- 
guage of the country, with many years of life and experience in the 
Tropics, I find it exceedingly difficult to obtain " facts " concerning 
this vast region. If I can not do it, having nothing else to do, how 
shall a diplomatic officer many thousands of miles away, and with a 
multiplicit}^ of interests, be able in a necessarily hasty revision to 
"indicate errors of fact?" 

I believe that the same objection lies as to the necessity for elimina- 
tion of "portions — likely to give offense or cause embarrassment" — to 
the diplomatic officer as such. Granting that the valuable and im- 
portant aim of the proposed plan should be largely attained, it seems 
probable that, in the countries to which I refer, the diplomatic officer 
would be almost compelled to examine consular reports submitted 
for his revision, etc., with a distinct bias toward his diplomatic status 
rather than as being in the position of editor of a trade journal 
which, indeed, is the nearest analogy to the position the plan contem- 
plates his assuming. ^Yliile provision is made to preserve the " spirit 
of initiative " by a final revision and decision by the Department, it 
would seem to be unavoidable that in practice the revisions, annota- 
tions, eliminations, etc., of the diplomatic officer would be adopted by 
the Department, for several reasons, viz, the dignity of the officer, the 
assumption that he possesses the knowledge and ability to make these 
corrections, the lack of time and of data for the Department to make 
due investigation and decision. 

Otherwise, such comments would cease to have value, and the diplo- 
matic officer would either simply forward reports or perform the 
revision in a necessarily perfunctory manner. In either case, the only 
result attained would be useless delay in the publication of the 
reports. 

At the same time, I believe that, if provision can be made for corre- 
spondence on such subjects directly with the legation, without giving 
offense to the consul-general, most valuable results can be attained. 
Again, taking this consulate as an example, it is absolutely impossi- 
ble to procure statistics of imports into this consular district. Such 
statistics are prepared, it is true, in the custom-house, but they are 
forwarded to some central office at Rio de Janeiro, where similar sta- 



200 PROMOTION OF TRADE INTERESTS. 

tistics are received from all the States and only general tables of im- 
ports for the ^diole Eex3ublic are published. These statistics, thus 
unattainable by me, could, no doubt, be readily obtained by the lega- 
tion at Rio. In my opinion, the legation should, therefore, invite from 
consuls statements of what matters are not obtainable b}^ them, and 
should supply such dehciencies directly to the Department. On pub- 
lication of the reports received from the legations, copies should be 
sent to all the consuls of that country for their information. How 
can I answer queries regarding the best way of selling American 
manufactures, e. g., of cotton prints in Para, when I can not get any 
idea, at all accurate, of the actual gross imports of cotton goods into 
this district, to say nothing of detail by countries ? 

The modification that I woidd respectfully suggest would be this: 
That the consuls should be both empowered and instructed to commu- 
nicate with the legation, whenever they should find themselves unable 
to obtain facts, data, or information which it was possible the lega- 
tion could obtain. According to the importance of the matter asked 
for, the legation might either inform the consul, or report in extenso 
to the Department, copies of these reports being afterwards sent to all 
the consuls of that country. The " spirit of initiative " would thus 
remain with and be fostered in the consular corps, and the " friction," 
which the circr.lar evidently foresees, would be entirely avoided. 
There is a vast difference between the mandatory request sent out by 
a diplomatic officer to a consul and the respectful request of a consul 
to a diplomatic officer for information which the consul knows he 
needs. The mere possibility of criticism by an officer, whom the con- 
sul can not believe to be possessed of as much knowledge on the spe- 
cial subject as himself, would act rather as a deterrent than as an 
encouragement to make difficult and laborious investigations and then 
reduce these to writing. But it would be a very decided encourage- 
ment if the consul knew that he could apply to the diplomatic officer 
for such information as he, the consul, could not get and the diplo- 
matic officer could. Each would then be concentrating his energy on 
the facts and phenomena under his control, and their joint work 
would be of real value. Under the proposed plan, either the diplo- 
matic officer must, theoretically, possess full and final knowledge, or 
the resultant, revised report wdll have merely a doubtful and contro- 
versial value. 

Since the Department has honored me by requesting an expression 
of my views on this subject, I desire to most heartily and thoroughly 
give my adherence to the suggestion of the creation of " commercial 
or industrial attaches " to our Central and South American legations. 
I shall speak for Brazil only, although I am convinced that the argu- 
ment holds good for every Latin -American countr}^ Brazil is natur- 
ally our market, but we are not in possession of it. I am inclined to 
believe that the excellence of our manufactures is causing a small^ 
slow^, increase in our trade. This increase, thus made, is most valuable 
because, from its nature, it is permanent. But it is small. Germany 
and England hold this market. For years and years, German mer- 
chants have been gathering commercial information here. They 
know every tiniest detail of law, regulation, custom, local and indi- 
vidual, affecting trade. They conform to these. Before we can 
capture this market, we must know it as thoroughly. We must study 
its conditions, environment, phenomena ; treat it as a scientific prob- 



PEOMOTION OF TRADE II^TEREST . 201 

lem to be resolved on purely scientific lines and by scientific methods. 
Then consuls will not receive, as I here, under the equator, have 
received, letters with expensive catalogues accompanying them adver- 
tising heating stoves and asking " when do you have cold weather in 
your country?'' A commercial attache, speaking the language of the 
country to Avhich he is sent, acquainting himself thoroughly with the 
commercial legislation of the country, traveling all over it, and learn- 
ing the various State commercial codes and procedures, personally 
interviewing and working with consuls in their districts, pointing 
out to them fields of inquir}^ and methods of study; such an officer 
Avould be of simpty incalculable benefit to our country. He should 
be given diplomatic status, if possible, in order that he might readily 
obtain from State governors immediate attention and respect. 

In general, I believe the plan outlined in the circular to be one of 
the most important in its effect upon the efficiency of the consular 
corps in the history of that corps. There is a modern tendency to 
consider consular officers as mere " commercial agents." Undoubt- 
edly they are such, for the most part. But such a close alliance 
between the diplomatic and consular bodies of the United States, in 
the interests of commerce, would go far to elevate the " commercial 
agent " to a position of such dignity as anciently tittached to the 
title " consul." This in itself would be a renewed incentive to all 
consuls to do the best work that was in them in this direction. The 
knowledge that the high diplomatic officer was a coworker in this 
field with him would spur him on to greater efforts. Consuls are, 
however, very jealous of any other control than that of the Depart- 
ment itself. Consuls-general and their supervision are a part of the 
Department, but any sort of control by officers even of the rank and 
dignity of ambassadors might be irksome to and misunderstood by 
consuls. If it can be arranged and understood that consuls can apph^ 
to the officers of the diplomatic corps when they find their own per- 
sonal efforts insufficient, with the certainty that their needs will be 
understood and appreciated, that the diplomatic officer is himself, in 
his field, working to the same end, and that there is no question of 
new superiors to be consulted and obeyed, I believe every hard-work- 
ing and patriotic consul in our service will heartily welcome the plan» 

Louis H. Ayme, Consul. 

Para, Octoher 4, 190.!^. 



SAI^OS. 



In reply to the request to give my views in regard to a plan for the 
cooperation and improvement of existing facilities for the collection 
of commercial intelligence and the promotion of American trade 
interests abroad, I have to say that I am of the opinion that the exist- 
ing facilities for collecting information would be greatly benefited 
if the diplomatic officers and the principal consuls could work in con- 
junction. It is often very difficult to furnish a satisfactory report 
on the commerce and industries of a country, and certainly every 
avenue should be open to consuls. A majority of the consuls are 
poor men and can not afford to employ some one to travel over the 
district in search of information, and they can not neglect their offi- 
cial duties and go themselves. Consuls, in my judgment, should be 



202 PEOMOTION OF TRADE INTEEESTS. 

better paid. Our country gets more information for less money than 
an}^ other country. If consuls could confer with the legations freely, 
results would be more satisfactor}^ 

J. H. JoHNSOJf, Consul. 
Santos, Octoler 16, 1901^. 



CHLLE. 

Re/port from, the Legation. 

Legatiox of the United States of America, 

Santiago, Chile, Octoher 15, 1901^.. 

I have the honor to acknowledge the receipt of Department's cir- 
cular of instruction of July 29 last, entitled '' Promotion of trade 
interests," and to report as f oUoyn^s : 

I entirety agree with the general idea of the circular, viz, that our 
diplomatic service could and should be brought into closer and more 
active cooperation with our consular body in the collection of com- 
mercial and industrial information. Here in Chile, however, the 
cooperation suggested by question 1 would not be altogether prac- 
ticable. Our consulates are strung along the coast at various ports 
between which there is no railroad communication. All mail from 
the United States comes by steamer from Panama. An instruction 
intended for our consul at Arica would reach him three weeks sooner 
if sent to him direct — i. e., if put off there on the steamer's southward 
trip, than if directed to the legation and then sent north again. 
The same would be true, to only a slightly less extent, of instructions 
intended for our consuls at Iq\uque and Antofagasta. Were the con- 
sular officers at these three posts to transmit their reports to this 
legation for revision, a second serious delay would be occasioned. 

Yet in this country, the cooperation of the legation is especially 
desirable, not to sa}^ necesary, for the reason that the Government is 
highly centralized. All provincial officials are Federal appointees and 
directly subordinate to the various administrative departments at the 
capital. The whole industrial and commercial life of the country 
really centers here in Santiago. The semiofficial organizations, such 
as the National Agricultural Societ}^, the National Miners' Associa- 
tion, the Commercial Association (Fomento Fabril), etc., are located 
here. Here man}^ of the great business houses have their head offices, 
and all are represented. It is obvious, therefore, that the bidli of the 
work of collecting commercial and industrial information in Chile 
would fall on the legation, whether it were supposed to act in an 
advisor}^ or revisory capacity, or to report independently of the con- 
sulates. I should, therefore, advise that, whenever the Department 
desires trade information of a general character, it should rely pri- 
marily on the legation, instructing the consulates, at the same time, to 
prepare independent reports from such sources of information, as 
they respectively have at hand. This method would not preclude the 
legation's asking information of or giving it to any or all of the con- 
sular officers should it seem expedient. 

As regards question 2. There is at present no such systematic 
cooperation as that under discussion between the consular and diplo- 



PKOMOTION OF TRADE INTERESTS. 203 

matic ser vices of Chile. Xor has Chile any coiynnercial or industrial 
attaches. A project will be presented at the extra session of Con- 
gress, just beginning, for the establishment of a consular section in 
the department of foreign affairs, and this project, I am informed 
by the minister of that department, aims also at a systematized coor- 
dination and cooperation between the various consulates and between 
the consulates and the legations. 

Commercial attaches would, in my opinion, especially in capitals 
where we have no consul or consul-general, be useful for the United 
States. Even in capitals where we have a consular officer, they would 
be desirable, in view of the limitation upon the consular service in 
obtaining official information at first hands, pointed out in paragraph 
8 of the Department's circular — viz, its lack of diplomatic status. 

I would answer question 3 by advising the addition of a conrmercial 
attache to the personnel of this legation. Were both the minister 
and the secretary of legation always here, they could '--■atisfactorily 
attend to the collection of si:ch general commercial information os 
might, with likelihood, be desired, but in the absence of the secretary, 
the minister, and, in the absence of the minister, the secretary, as 
charge d'affaires, would have little opportunity for the preparation 
of thorough and authoritative reports. An attache, who could devote 
his time to commercial and industrial matters only, could keep well 
occupied. There are miiny activities here, reports on ^vhich would 
bo interesting and profitable. 

Moreover, the attitude of Chileans toward our country and people 
is every day m ore cordial ; they look f orw^ard with sanguine expecta- 
tion to the closer relationship, commercial and otherwise, that the 
Panama Canal will bring about. One hears much talk and reads 
much in the newspapers of the great benefits Chile will derive from 
direct steamship connection with the United States and a shortened 
voyage to Europe. To us, also, the opening of the Panama Canal 
should mean a distinct commercial gain in Chile, as in all South 
America. But to compete successfully with European nations in this 
market then, we must make an effort to secure the mar]?:et now. We 
should study it carefully, giving attention rather to its demand 
than to our supply. In a commercial report, which I had the honor 
to send to the Department from Buenos Ayres, last December, I called 
attention to the difference between German and American methods 
of securing trade there. I can not too strongly recommend our adop- 
tion of German methods here, and 1 believe the appointment of a 
capable commercial attache would be a long step in the right direction. 

Edward Winslow Ames, Charge. 



Ojrlnions of Consul Green. 

ANTOFAGASTA. 

I beg to say that, in my opinion, joint action of diplomatic and 
consular officials will certainly favor commercial interests, as the 
diplomatic officers, being near the Government, will be able to often 
secure earlier statistics. The great difficulty is found in the long 
delay of statistical offices in publishing the yearly reports. For 
example, at present, we have the Estadistica Commercial for 1902, 



204 PROMOTION OF TRADE INTERESTS. 

and a copy was duly supplied to the Department. We have no infor- 
mation as to when we can expect that for 1903 ; and the only reliable 
statistics are those found in the official publications. To obtain even 
a regular monthly statement from the statistical employees would 
involve a large expense not provided for. 

For ni}^ own part, I lose no opportunity to do all in my power to 
help trade. 

C. C. Green, Consul. 

A'tvTtofagasta, Chile, Seftemher ^8. lOOIf. 



COLOMBIA. 

Report from the Legation. 

American Legation, Bogota, Octoher 5, 1901^. 

Referring to Department's instruction of July 29, relative to the 
promotion of trade interests, I have the honor to say that I believe 
some arrangement along the lines indicated in this circular highly 
practicable, and that it would prove a powerful aid in the work of 
furnishing our manufacturers and exporters with valuable informa- 
tion, at times impossible, almost, for our consular officers to obtain 
without great trouble and delay. I can recall several instances here 
when, answering Department circulars, I was greatly aided in my 
search for information by the diplomatic character I enjoy, and have 
often thought that some such arangement as the one under discussion 
would fill a long- felt want. 

As to the questions asked in this circular, I think it not only prac- 
ticable but beneficial to carry out question 1 in every particular. 

As to question 2, there is no such cooperation as that outlined in 
question 1 between the diplomatic and consular services of this coun- 
try, nor does the Government have any commercial or industrial 
attaches. I do not think conditions or business are such as to justify 
the presence of commercial attaches in Colombia at present. The 
system of commercial and industrial attaches is an excellent system 
and certainly ought to be adopted by our Government, but on the 
order of the English method — viz, the presence of those attaches 
at the seats of the most important governments, commercially and 
otherwise. The time may come when their presence here will be 
beneficial. 

Under normal conditions, no additional assistance would be needed 
to enable this legation to carry into effect the programme described 
in question 1. 

Alban G. Snyder, Charge. 



ECUADOR. 

Ojnnions of the Consul- General. 

In compliance with Department's circular, requesting an expres- 
sion of opinion as to the ad visibility of the cooperation of the diplo- 
matic officer accredited to Ecuador in the supervising and gathering 



PROMOTION OF TRADE INTERESTS. 205 

of commercial and industrial data, etc., I will say that such officer, 
])eing located at Quito, in the interior of this Republic, and away from 
the commercial center of activity, and with ver}^ poor facilities for cor- 
responding with consular officers, who are all located along the coast, 
at the principal commercial cities, the only places where commercial 
intelligence can be gathered, is not in a position to add much to the 
)nachinery for collecting information as to business conditions in this 
-Republic. 

This particular condition, however, does not exist in all countries, 
and it is certain that, in a great many localities, the diplomatic officer 
could render valuable service by aiding consular officers in gathering 
information of importance 

In Ecuador, the principal port, Guayaquil, is the commercial center 
having a large import and export trade, the custom-house, chamber of 
commerce, banks (4). revenue coUectorships, etc. It is, therefore, 
the place where commercial and industrial information has to be 
gathered, and the onl}^ place in this Eepublic wdiere such records are 
kept. It is apparent that the consular officer stationed at Guayaquil, 
is the proper official to supervise the gathering of such information as 
is required, or may become necessary for the advancement or exten- 
sion of our commercial interests. 

Should the consular officers, after gathering the desired informa- 
tion, transmit the same to the diplomatic officer, who, of course, would 
be stationed at Quito (the capital), 240 miles in the interior, for the 
purpose of having such report revised or corrected, it would be 
impossible for that officer to do so, as no bureaus of commerce and 
industry exist at the capital. The said diplomatic officer would be 
dependent on Guayaquil, in order to obtain such data as do exist. 

For the reasons thus given, I would consider it of very little 
importance, if an^^^'at all, for the Department to first transmit instruc- 
tions to the diplomatic officer accredited to Ecuador, for the collect- 
ing of commercial intelligence, and for that officer to then retransmit 
the same instructions to the consular officers. Such a procedure, 
under the existing conditions here, would only tend to delay. 

If a commercial or industrial attache were stationed in this country, 
he would be of much more service and could do more good here in 
Guayaquil than if he were in Quito. 

Herman" R. Dietrich, Gonsul-General. 

Guayaquil, September 15^ 190If. 



GUIANA. 

'pinions of Gonsvl Moult on. 

Regarding the promotion of American trade interests in foreign 
countries, I have the honor to state that, in view of the remoteness of 
the American embassies to the countries governing the colonies com- 
prising this consular district (British, French, and Dutch Guiana), 
it is presumed that, as a matter of expeclienc}^, official business of this 
consulate will continue to be transacted directly with the Department 
of State, and that my views concerning the improvement of existing 



206 PEOMOTIOT^ OF TRADE INTERESTS. 

facilities, as suggested in the circular, would be immaterial. It is per- 
tinent for me -to state that this office, during the experience of the 
present incumbent, has had no difficulty in obtaining, through the 
courtes}^ of the local customs officials, such commercial and industrial 
data as are required b}^ consular regulations or Department circulars. 
It has seldom been necessary, in order to obtain information of that 
character, to correspond with the Government's secretary's office. 

Geo. H. MouLTOisr, Consul. 
Georgetowx, Guiana. August 30^ 190 J^. 



PARAGUAY AND URUGUAY. 

Refort from Minister Finch. 

MoNTEYiDEO, September 16^ 190Jf. 

I acknowledge the receipt of your circular letter dated July 29 last 
in relation to cooperation of the American diplomatic and consular 
corps as to commercial matters. 

You ask : 

1. Would it be practicable for you to transmit to consular officers in the 
country to which you are accredited instructions from the Department ol' 
State from time to time, for particular inquiries ; nothing in your dispatch of 
transmission any suggestions that may occur to you, from your sources of infor- 
mation at the capital, which would facilitate the inquiry or help to make it 
more comprehensive or more exhaustive? 

Yes. 

If the consular officers should be directed to transmit their answers to such 
instrucions through you, could you undertake to have their reports revised, 
with annotations indicating errors of fact or judgment, or portions to be elimi- 
nated as likely to give offense or to cause you embarrassment in your diplo- 
matic capacity? 

Yes. 

2. Is there such cooperation as that outlined above between the diplomatic 
and consular services of the country to which you are accredited? If so, 
describe it as fully as you can. Has the Government any commercial or indus- 
trial attaches? Would such attaches, in your judgment, be useful for the United 
States? 

The German consuls in Paraguay and Uruguay send copies of all 
reports deemed important to the German ambassador at Buenos 
Aj^res. The reiDorts are subject to his revision, and the consuls follow 
his suggestions and instructions. 

As to the utility of an attache, that would depend chiefly on the 
individual. He could be very useful. 

3. What additional assistance, if any, v^^ould be needed to enable you to carry 
into effect the programme described under question 1? 

If the consular force could be made available, no additional assist- 
ance would be necessary ; but if not, then some person who is compe- 
tent to gather and compile statistical and other information, examine 
records, and utilize suggestions would be needed, as this legation has 
no staff. 

William E. Finch, 
Minister to Paraguay and Uruguay. 



PROMOTION OF TKADE INTERESTS. 207 

Opinions of Consul Rnffln^ Paraguay. 

With regard to circular, " Promotion of trade interests," I beg to 
say that instructions from the Department of State could be trans- 
mitted from time to time to consular officers through the legation for 
this country, but it would occasion some delay in sending the reports 
to the Department, owing to the nonresidence of the minister at this 
capital. However, the facilitating of information could be advanced 
considerably should the diplomatic officer transmit a letter through 
the consul to the foreign office requesting information to be handed 
to said consular officer on the particular subject that is under inquiry 
by the Department. This letter could be presented to said office and 
information would be accorded fully through this official channel of 
the Government. This Government, however, has not been exacting 
of diplomatic ceremonies in acceding to the request of a consul since I 
have been here, which is about seven years. 

There is no cooperation here between the diplomatic and consular 
officers accredited to this country, as far as I know, otherwise than 
responding to the request of a diplomatic officer on the consul for 
information on some topic of special interest. 

Eespecting the possible result of legislation by Congress to make the 
facilities of a consul for obtaining information more efficient, the 
French Eepublic has accredited to this Government a charge d'affaires, 
in whom is lodged all the functions of a consular officer. This enables 
him to gather all the information necessary without any difficulty 
whatever. France has no minister plenipotentiary accredited here. 
For this place, where there is no resident minister, and to avoid delays 
in the transmission of information, this method of the French Repub- 
lic would, perhaps, be advantageous if adopted by the United States. 

John N. Ruffin, Consul, 

Asuncion, Paraguay, September 30, 1904- 



PERU. 

Report from Minister Dudley. 

Legation of the United States, 

Lima, August 31, 1901^. 

I have the honor, in compliance with the Department's circular of 
instruction of the 29th ultimo, to submit my views concerning the 
coordination and improvement of the facilities afforded by our diplo- 
matic and consular services in Peru for the collection of commercial 
intelligence. Improvement will result all along the line, I do not 
doubt, in consequence of the interest so strikingly manifested by the 
Department through its circular. Coordination of effort between the 
two branches of our foreign service in this country, however, is prob- 
ably of less importance than in countries divided into several districts 
for the purposes of our consular administration. 

In Peru, there is but one principal consular officer of the United 
States, viz, the American consul at Callao. Under the description in 
his commission, so long as he remains the only principal consular 



208 PEOMOTION OF TRADE INTERESTS. 

officer of the United States in Peru, his jurisdiction extends through- 
out the Eepublic. Now, the tentative proposals of the circular are 
subject to the following condition: *' It is to be understood that the 
Department would continue to communicate directly with consular 
officers as to matters pertaining exclusively to their districts." If so, 
all communications from the Department to the consul at Callao 
would be made directly, his district, or territorial jurisdiction, being 
the whole of Peru. 

The only American consular officers elsewhere in Peru are consular 
agents — subordinate officers not authorized to correspond with the 
Department. 

Lima and Callao are but 9 miles apart, and one effect of their prox- 
imity is that practicalh^ all general sources of information at the capi- 
tal and the port are equally available to the legation and the consulate. 
It is also to be remarked that the present incumbent of the consulate 
resides at Lima, as did his immediate predecessor. For these reasons, 
in the writer's opinion, it would not be advisable, even if otherwise 
unobjectionable, to have this legation transmit to the consulate at 
Callao the Department's instructions, from, time to time, for particu- 
lar inquiries, because, generalh^ speaking, " the sources of information 
at the capital " are entirely at the command of the consul at Callao, 
through newspapers and other publications, and his daily personal 
intercourse. 

To meet the limitation upon the consulate, resulting from its lack 
of diplomatic status and possible inability to reach the proper minis- 
terial department of government for desired information, it is rec- 
ommended that the answers to special instructions for reports 
(together with a copy in each case of the instruction) be transmitted 
by the consul to the legation, to be forwarded after revision to the 
Department. Defects, if any that the consul might be unable to 
suppty, might be made good by the legation with the assistance of the 
central Government, annotations of the character suggested in the 
circular added, and the consul's report supplemented at times with 
cognate information of interest. Of course, no additional assistance 
would be needed to enable the legation to carry this suggestion into 
effect. 

It is learned at the Peruvian foreign office that there is no such coop- 
eration as that outlined in the circular between the diplomatic and con- 
sular services of Peru, and that this Government has no commercial 
or industrial attaches. Such an attache in the writer's judgment 
would be of little use to the United States in Peru in view of the 
limited field for his activities and what should be, and it is believed 
is, the adequac}^ of existing official channels of information. 

Irving B. Dudley. 



Opinions of Consul Gottschalh. 

In replj^ to circular, " Promotion of trade interests," permit me to 
say after careful consideration that, while I am entirely in sympathy 
Avith the general idea of systematizing our foreign service, I believe 
nothing but harm can accrue from investing our legations with func- 
tions which b}^ right would seem to be those of a consul-general. The 
plan proposed will to my mind considerably lessen the prestige and 



PROMOTION OF TRADE INTERESTS. 209 

the working- usefulness on diplomatic lines of our legations. It may, 
besides, give rise to friction between legations and consulates situated 
anywhere in the immediate vicinity. I should also like to place upon 
record the fact that I have invariably found it detrimental to the 
consular service whenever a legation entered into correspondence with 
the consular agencies otherwise than through the consulate. In short, 
I have the honor to suggest that competent consuls-general are the 
persons to whom, for reasons of policy, of practicability, and of the 
general discipline of the service, the work in question should be 
intrusted. 

Alfred L. M. Gottsciialk. 
Callao, Peru, October 5, 190.^. 



VENEZUELA. 

Rejiort from, Minister Boicen. 

Caracas, Venezuela, August 20^ 190 1^.. 
In answer to 3^our circular of July 29 last, in regard to the promo- 
tion of our trade interests, I have the honor to make the following 
suggestions : 

I. That the secretaries of our legations in Central and South 
America be made consuls-general. 

II. That they be charged with the special duty of securing infor- 
mation of a commercial kind, and of inducing the Governments to 
w^hich they are respectiveh^ accredited to publish statistics and 
reports on trade and commerce. 

III. That the secretaries (consuls-general) communicate to the 
consuls under their supervision the information they receive in order 
that the consuls may be better informed about the trade of the 
country and may become more efficient. 

ly. That the secretaries (consuls-general) be provided by the con- 
suls Avith copies of all commercial reports they make to the Depart- 
ment and with all other necessar}^ data to enable the secretaries 
(consuls-general) to make general and special reports to the Depart- 
ment. 

V. That the salaries of the first secretaries of legation (consuls- 
general) be raised to $5,000 and of the second secretar}- to $2,500. 
The secretaries are underpaid. They can not live respectably on the 
salaries they are now receiving. Every legation should have a second 
secretary. 

VI. Any plan to make a minister plenipotentiary an expert consul 
would prove harmful to both the diplomatic service and the coiisular 
service. 

Herbert W. Bowen. 



Ojnnion of Consul Peterson. 

I beg to acknowledge receipt of Department circular, " Promotion 
of trade interests." 

The concentration of the compilation of reports or statistics relat- 
ing to a foreign country in the hands of a central authorit}^, to be 
H. Doc. 245, 58-3 14 



210 PROMOTION OF TRADE INTERESTS. 

found only in the diplomatic representative, should undoubtedly 
lead to a fuller and more comprehensive knoTvledge of the subject, 
and avoid or harmonize the conflicting views due to partial investi- 
gations on various sides, without proper collation or systematization. 
As suggested, the centers of official information could more readily be 
reached through the diplomatic representative, a difficult undertaking 
at best for the consular officer, as I gather from the correspondence of 
my predecessors. 

The plan proposed seems to promise increased efficiency in the col- 
lection of commercial intelligence and the promotion of American 
trade interests abroad, and should commend itself to both branches of 
the service as a means of further developing their importance and 
usefulness. As a consequence, the consular officer would realize more 
fully his responsibility as a factor in a systematized service, whose 
usefulness was not bounded by the limits of his consular district, and 
should thereby be stimulated to put forth his best efforts and pre- 
vented from taking narrow and contracted views as to the nature and 
results of his labors. 

Jerome B. Peteeson. 

Puerto Cabello, Venezuela. August 23. 190 Jf. 



ASIA. 
CHINA. 

Report from Minister Conger. 

Legation of the United States of America, 

Peking^ Ghina^ September 23, 1904. 

Replying to Department circular of July 29, " Promotion of trade 
interests," I believe that much can, undoubtedly, be accomplished by 
the sj^stematic cooperation of the diplomatic and consular services 
in gathering information relative to trade interests in China. 

Many inquiries are now addressed to the legation. IMore accurate 
and comprehensive replies could be made to these if some one were 
deputed to make inquiries b}^ circular of all the consuls, and to digest 
and summarize the answers received. Consuls now make most inter- 
esting and valuable reports on many subjects, but many of them 
could be made more valuable b}^ complementary reports from other 
districts on the same subjects. A more comprehensive view of any 
particular trade as conducted throughout the Empire could thus be 
obtained. Eegular reports could also be arranged on special sub- 
jects, to be made at stated periods by each consul, and then could be 
edited at the legation. 

Peking is far to one side, and not being a port of international 
trade, the legation is very much out of touch with conmiercial inter- 
ests. This defect could be remedied by the method proposed. Com- 
munication is slow and difficult between the various provinces of 
China, and it might be best to have important inquiries from the 
Department addressed as now, directly to each consul, with instruc- 
tions to report to Peking, sending a copy, at the same time, to the 
Department, at least from the more distant consulates. 



PROMOTION OF TRADE INTERESTS. 211 

Replying to your inquiries in their order : 

Xo. 1. With the assistance of a commercial attache, ves. 

JSTo. 2. No. 

No. 3. The appointment of a commercial attache. 

Such attache should be a man of experience in commercial affairs, 
with special aptitude for the 'work. He should be familiar with 
China, its resources and customs, and, preferably, able to speak 
Chinese. If not able to do so, he ought to be supplied with an inter- 
preter especially detailed for such work. 

Other Governments, notably Great Britain, France, and Germany, 
have such attaches. Those of Great Britain are men detailed from 
the consular service, and have had long experience in China, are able 
to speak Chinese, and give special attention to such investigations. 

The appointment of an untried man would be worse than useless; 
it would probably lead to unnecessary and annoying delays and 
confusion. 

Chinese industrial and commercial institutions are so unlike those 
of the West, and the conditions of trade so peculiar here, that one 
unfamiliar with them is apt to be misled and to make rash and 
untrustworthy generalizations. 

E. H. Conger. 



Opinions of Consular Offilcers. 

AMOY. 

I have the honor to report as follows in answer to your circular of 
August 4 : 

The plan of having a commercial attache would certainly be a good 
one. The usefulness of such a man would be in visiting the various 
ports and the interior tributary to those ports. Practically all of the 
information which can be had regarding foreign and domestic trade 
is available in any port where there is an American consul or a 
custom-house. Trade conditions differ greatly in north, central, and 
south China. It might be profitable to have three or more men to 
investigate trade possibilities in these districts. Attaches who work 
only in the ports open to foreign trade would but skim the surface. 

This province is one of the richest in China, with a population of 
22,000,000. It is estimated that 10,000,000 of this population is 
tribu^tar}^ to Amoy. There are about 2,500,000 Amoy Chinese abroad. 
If each remits only $10 a year to his clansmen, it makes $25,000,000 
part of which may be used in buying foreign luxuries and necessities. 

A commercial attache should investigate the interior, as he could 
thereby reach millions and ascertain their wants as against thousands 
only in the treaty ports. Valuable services could be rendered in the 
cotton-goods trade, for instance, by learning the length and width of 
the pieces in use in the district described. Also the mark or brand 
in general use. If the Chinese are accustomed to a bolt of cloth 
wrapped in gold-colored pajDer Avith a blue eagle on it, they want that, 
and anything else is considered an imitation and a fraud. These 
points may seem trivial, but they are of importance in dealing with 
Chinese. 

It might be suggested that the chamber of commerce in the vari- 



212 PROMOTION OF TRADE INTERESTS. 

ous American cities interested in the export trade could assist in the 
work of pushing American goods in the interior of China bj^ sending 
a representative to work with the commercial attache. 

The country tributaiy to Amoy alone offers a field rich enough to 
employ a man for a considerable time. The ordinary duties ^of a 
consul at this port prevent him from giving the work' the time and 
attention it deserves. 

John H. Fesler, Consul. 
Amoy, October L 190 L 



rUCHAU. 



I have the honor to acknowledge receipt of the circular of August 
4, 1904, relating to the " Promotion of trade interests." 

In coinj)lying with your instruction to give my views on the sub- 
ject presented therein, I may say that, with the \inderstanding that 
consular officers should still make their full reports personally and 
directty to the Department of State, I see no objection to the scheme; 
but I should strongly object to have my reports go merely to the 
minister, to be swallowed -up in a general report to be made' by him, 
ivhoever he might be. I believe e^^ery consul should have full credit 
:for all the effort put forth b}^ him in obtaining information and 
transmitting the same to the ' Department. I believe, however, it 
would be for the good of the service that a copy of each report thus 
prepared should be sent to the diplomatic officer, and that he could, 
h^ the information thus given him, prepare a better report than is 
now possible. I think this is especially true of China, where each 
consular district diifers from all others in the Empire in some impor- 
tant particulars. No general report made by the legation could con- 
vey the local color of the several districts. What may be true of 
Canton may not hold at all in Amoy or Fuchau. All ports and con- 
ditions of trade, etc., in the south differ from those of the Yangtze 
valley and the north, and yet a general report for all China should 
be made from Peking, and the legation should have the reports from 
local districts to enable that office to make its more complete and 
general report. 

I have long been of the opinion that something similar to what is 
suggested in your circular should exist, and have taken occasion fre- 
quently to send copies of my reports to the minister at tlie same time 
that I mailed my report to the Department. I often feel like writing 
to the Department of matters of general character relating to trade 
in the country, political conditions, etc., as they appear to me, but 
have refrained because they refer more particularly to other districts, 
and I have supposed the legation would send such information, but 
in many instances have failed entirely to find aii}^ reference thereto 
in any published reports from the Department covering these things. 
My colleague. Consul Fowler, has frequentl};- made such general 
reports, which I thought very excellent, but the^^ appeared to me to 
belong rather to the duties of the legation or consul-general, and I 
have refrained from doing the same, though often tempted, because 
I did not like to assume the duties of these higher Government officers. 

I am of the opinion that an expert commercial attache, giving his 



PKOMOTION OF TRADE INTERESTS. 213 

whole time to investigations, in all parts of the Empire, visiting the 
several consuls and consulting with them and through them brought 
into personal contact with American merchants in all parts of China^ 
would be a most desirable adjunct to the present system. He could 
compare methods of business as pursued in different places, and be 
able to make suggestions to the Department of Commerce concerning 
all trade conditions, which would be immensely valuable. Being- 
located, as I am, at a provincial capital, I can avail myself of all 
the authority of the Viceroy and Tartar General, and other provin- 
cial officials, and secure through them advantages not obtainable by 
strangers. I can not therefore see that the minister could aid me 
much, except that, as he gathers information from other sources, he 
might transmit to us what might be very valuable. I have just 
recently received from our minister official information, rules and reg- 
ulations relating to mining, railroad construction, etc., for which I 
returned my thanks, and said, further, that I would be grateful if 
he would transmit to me promptl}^ all regulations established by the 
central government relating to such things. Hitherto, no official 
information (or at least very rarely) has been sent to me from the 
legation, and I have only learned of them through the papers, or by 
applying to some of my colleagues, British, French, or Japanese, 
who always receive from their diplomatic representatives official 
copies of such regulations. Will the Department direct the legation 
to furnish the consuls with all such things promptly ? 

I am doing my utmost to promote trade in American goods in this 
district, but I am not able to obtain statistics showing what amount 
of American goods, machiner}^ etc., come to this district, owing to the 
fact that all such goods are first entered at Shanghai or Hongkong, 
and are only reported as coming from one or the other of those places, 
and not from America, England, Germany, etc. There are doubtless 
great opportunities for increase of trad^e just ahead of us in China. 

Samuel L. Gracey, Consul. 

FucHAu, Septemhei' 17, 190.'^. 



HANGCHAU. 



'\A^iile I do not feel that my experience in Chinese matters has been, 
sufficient to enable me to speak authoritatively upon the subject, it is 
plain to me that the sloAvness of communication in China demands 
heroic measures if trade reports from this country are to be what they 
ought to be. My newspaper experience and our way of collecting- 
news from a great field incline me to the belief that there ought to be 
some sort of clearing house for consular news, some central point to 
which either the originals or copies of consular trade reports may be 
sent for correction or comparison and for the immediate information 
of other consuls in the same countrj^ Such a central agency could 
naturall}^ be of the utmost service in suggesting topics for considera- 
tion and investigation, and for directing, in some measure, the general 
course of trade reports. Probably a commercial attache at Peking 
could do this work better than an officer located at any other point. 
Much of his work, liowever, would haA^e to be done in Shanghai. 

I believe that the connection ' between consular officers and the 



214 PROMOTION OF TRADE INTERESTS. 

legation in China in trade report matters is not as close as it ought to 
be because of the fact that the consuls do not understand that they 
can get information for their reports from or through that source. 
With a commercial attache at Peking, this would certainly not longer 
be the case. Having a Government representative, with diplomatic 
status or connections to serve them and direct them in this line, the 
work of consuls ought to be more intelligent, more thorough, and 
more effective. 

George E. Anderson, Consul, 
Hangchan, Novem'ber 3, 1904- 



I have to acknowledge receipt of your circular of August 4, " Pro- 
motion of trade interests," and in reply thereto beg to say: 

So far as China is concerned, there is no question in my mind of 
the importance, value, and necessity of having a commercial head to 
the consular work in that line. As the work is now done, it is lack- 
ing in systematic method and effectiveness. Requests are continually 
coming to me for information that could be answered by other con- 
suls, but not by me. People are compelled to work blindly, hunting 
for knowledge of Chinese industries, productions, and markets that 
could be provided promptly and well by a special industrial agent. 

This commercial or industrial agent should visit often each con- 
sular district, and become an authorit}^ on Chinese products, indus- 
tries, and trade. He should be familiar with each district and its 
special characteristics, and should have in his office complete infor- 
mation, Avell arranged and compiled, concerning everything of im- 
portance produced, exported, and imported. He should be provided 
with a good library suited to his work, and his office should be an 
industrial and commercial bureau of information on China. He 
should know where coal and all other minerals are to be found; he 
should know the silk districts, the varied agricultural and horti- 
cultural productions of each consular district; and should be able to 
use the consuls in gathering this information, and through his work, 
it could be concentrated, compiled, and put into form to be utilized. 
The same work pertaining to commercial affairs could be organized 
under his direction. His office should also be the center of informa- 
tion concerning manufactures and dealers in the United States in 
things used in China. All industrial and trade reports should pass 
through his hands. 

The manufacturers in the United States are not familiar with the 
localities into which their goods in China finally go. They know 
little of the competition they must meet in these various districts, the 
taxes imposed upon these goods in various forms (usually differing 
in different localities) , and a consul can only tell of these things in his 
own district. A general agent could provide the entire information 
for all and formulate it in practical shape. 

Whatever may be the plan designed for other countries, some 
scheme of this nature is especially required for China, because of the 
fact that China herself has practically no effective machinery for 
gathering industrial or commercial statistics and information, except 



PROMOTION OF TRADE INTERESTS. 215 

the Imperial maritime customs service, and for such purposes as our 
industrial and commercial interests demand this is of no great value, 
and generalh^ misleading. 

A general agent could well be a commercial attache and under the 
general direction of the minister, but his main office should be at 
Shanghai. Through the high officials in Peking, he could secure let- 
ters to the officials of the Empire that would give him access to the 
information he would require. It would also be of special value to 
]iis work to provide him with as high a rank as possible. 

In connection with this subject I beg to repeat a part of my trade 
report for Manchuria for 1901, forwarded you March 5, 1902, as 
follows : 

In closing this report, I desire to call the attention of the Department to the 
fact that the trade and production and diversity of extensive industries of 
China are little known to the world in general. Some man discovers something 
in one section, another in some other province ; a consul makes a hasty report on 
one subject, another on something else ; but there seems to be no organized 
method for compiling in systematic form the mass of information that is dug 
out of the hidden and secret mystery of Chinese life. 

One of the dominating characteristics of the mercantile as well as the official 
and political life of China, is secrecy ; and when to this is added the feature of 
localities each having their own independent type of production, manufacturing, 
and trade, there is some explanation of the general ignorance concerning Chinese 
industries and their possibilities. Temporary commissions to • investigate and 
report throw little or no light upon the internal life and trade as it is, or what 
it may be. 

The interest of the United States in China has grown to such proportions, and 
our future relations are sure to be so important, that we require a more perfect 
method of securing and compiling industrial and commercial knowledge of the 
Empire. The consular service is not accomplishing one-quarter of what it is 
capable if provided with some improvement in the sj-stem. A permanent and 
exclusively commercial and industrial head should be provided for the service, 
and located in Shanghai, and all the consular service work in these lines should 
be done under the direction of this chief. China differs very materially from 
other countries in these lines, as there are no national reports, methods, or 
organization for providing information of this nature. The revelations made 
at this port in the publication of native customs report are onlj^ an insignificant 
matter, as compared with the great industrial production and trade, of which 
the world knows so little. 

A permanent and capable officer of the consular service, with duties that 
give him exclusive direction over industries and commerce, and limit the 
functions of his authority to these lines, with headquarters in Shanghai, is to 
my mind quite essential for the proper expansion and protection of the indus- 
trial interests of the United States in China. 

Great Britain has a commercial attache, Consul Jameson, whose duties are of 
this character, and his office is located at Shanghai. Germany has a special 
consul detailed for the same work. Russia has a commercial attache, who 
divides his time between Peking and Shanghai. Norway and Sweden have a 
special commercial agent located at Shanghai. 

There can be no question as to the importance of such an official and the value 
of the work that can be done. 

Henry B. IMiller, C onsul- General. 

NiucHWAXG, Sej)temljer 19, lOOJf. 



TIENTSIN. 



I have the honor to acknowledge receipt of Department circular 
^' Promotion of trade interests,*' and in reply have to say that I would 
be pleased to do m}^ part should the plan suggested be followed out. 



216 PEOMOTION OF TRADE IIJ^TERESTS. 

though I fear that the ministers, especially in China, have more to 
do than their limited staff can accomplish. I am inclined to the 
belief that the present methods of preparing commercial reports are 
more practical, but to make the reports successful requires a more 
effective corps of interpreters. At this consulate, the interpreter's 
salary has been cut from $1,500 per annum to $1,000, and I find it 
impossible to get a competent interpreter for that amount. With- 
out a good man in that position, ni}^ efforts to procure the best infor- 
mation are hampered. If the former allowance was restored, I could 
accomplish far more in procuring information and make my reports 
interesting and effective. The German Government has added to 
its consular service a commercial agent, whose sole duty it is to study 
and report on trade relations, but with a competent interpreter I 
feel confident that I could accomplish the same results. 

James ^y. Eagsdale, Consid-Geyierah 
TiENTSix, October 7\ 1904. 



INDIA. 

Reijorts from Consular Officers. 

BOlVrBAY. 

In response to the circular " Promotion of trade interests,'' I have 
to say : 

In my opinion, there is no office in the diplomatic or consular service 
w^hich has such advantages as an embassy for gathering information 
of whatever character — official or otherwise — first hand from the 
country or countries to which it may be accredited. It is also an 
acknowledged fact that the capabilities of a consul to obtain such 
information are limited by his lack of diplomatic status. 

With reference, however, to this consulate, the relations with the 
Indian government have always been of the most friendly and cooper- 
ative character, and when it has been at all possible, information of 
an official or other kind has been fulty given, upon request. As 
regards India, I do not think it would be advisable to have a commer- 
cial attache for the purpose of gathering information, inasmuch as the 
cooperation of the Indian goA^ernment with the American consular 
service in India is of the best, and am^ information desired could be 
as readih^ obtained by the consul as by a commercial attache. 

With respect to information affecting the general admini^stration 
and other international questions of India, though this office is of the 
opinion that a request from the Department of State, sent through 
the consular service, would certainly be granted, ^'^et, perhaps, an 
attache at London, through the secretary of state for India, might be 
able to get the desired data Avliere the consular service in this countr}^ 
would fail. During the tenure of the present consul, no refusals Ixave 
been met with from the Indian government, direct or otherwise, of 
proper requests for data concerning trade or commercial, industrial, 
or political questions. 

This office would prefer not to be put under the " blue pencil " of 
another office, except the Department of State, and were it done it is 
my opinion that it would considerably lessen the initiative of the 



PROMOTION OF TRADE INTERESTS. 2l7 

consular officer in seeking data for reports. Other consulates may 
not be so situated, but tlie above statements are the opinions per- 
taining to this particular office. 

Henry J. Dody, Vice and Acting Consul. 
Bombay, Sej^temher 8, 1904- . . 



CAI.CUTTA. 



Referring to Department of State circular of July 29, addressed to 
the diplomatic service, I have the honor to sa}^ that the published 
reports of all the departments of the government of India are sent 
to this office. Besides, the heads of the departments are most cour- 
teous in giving any and all information asked for to enable me to 
make such reports as may be called for, so that I can not see how our 
embassy at London coulcl be of service to this office in procuring infor- 
mation in India. 

I now correspond directly with the Department of State, and were 
it necessar}^ for me to receive instructions from, and to send my 
reports to, the embassy at London for revision, it would not only cause 
delay, but I am sure confusion would grow out of such a course. 

In countries where the consular officers are more intimately con- 
nected with and dependent upon our embassy for the information 
furnished by the Government to which they are accredited, such a 
scheme of supervision and cooperation might prove advantageous in- 
procuring the information desired, but here, where all such informa- 
tion is freely furnished by the Government officials, supervision on 
the part of our embassy in London would be a detriment rather than 
a benefit. 

R. F. Patterson, Consid-General. 

Calcutta, Sejytejnher 8, 1904- 



Report from Minister Griscom. 

Legation of the Uismted States. 

ToJqjo, Japan, October 12. 190 4. 

In reply to the Department's circular of July 29, 190-1, directing 
the preparation of a memorandum upon the capabilities of the dip- 
lomatic service for the promotion of American trade interests abroad. 
I have the honor to state that my observations lead me to the convic- 
tion that, being provided with a definite plan of action and proper 
instruments, this legation could become a very useful auxiliary in 
equipping our manufacturers and exporters for effective competition 
in this market without detracting from the exceedingly valuable in- 
dependent work of our consular service. 

It is unquestionabh^ true that the consular service is, in many cases, 
limited in its capacity" to give prompt and full reports, owing to its 
lack of diplomatic status and consequent inability to obtain official 
information at first hand. This legation is constantly in receipt of 



218 PEOMOTION OF TRADE Il^TERESTS. 

requests from consular officers for data which can only be obtained 
from government departments in Tokyo, and it is obvious that much 
valuable time is lost in correspondence in connection therewith. 

In reply to your numbered questions, I ma}' make the following 
observations : 

Xo. 1. It would be quite practicable for this legation to transmit 
to consular officers in Japan and Formosa instructions from the De- 
partment, from time to time, for particular inquiries, noting, in the 
dispatch of transmission, suggestions from the source of information 
accessible here which would facilitate such inquiries and increase the 
comprehensiveness of the resulting reports. 

No. 2. In reply to my application for information, his excellency 
the minister for foreign affairs of Japan, under date of October 4, 
1904 (copy herewith inclosed), advises me that the Japanese Gov- 
ernment has no commercial attaches in its diplomatic service and 
that the preparation of reports upon commercial matters is one of the 
duties of the consular service. Japanese dij^lomatic officers, however, 
under certain circumstances are required to furnish such reports. 

No. 3. With the assistance of an experienced commercial attache, 
this legation could undertake to have reports of consular officers 
revised, with annotations indicating errors of fact or judgment, or 
portions to be eliminated as likely to give offense or cause embarrass- 
ment to our diplomatic relations. 

To accomplish the ends outlined above, I am of opinion that the 
appointment of an additional attache to this legation would be neces- 
sary. Such an officer should be qualified by experience in our foreign 
service; should be familiar with commercial and political condi- 
tions in Japan; should be required to devote his whole time to his 
special duties ; should hold such official rank as would insure to him 
speedy audience with higher officers in the various departments of the 
Japanese Government, and should receive a generous salary and an 
allowance for necessary expenses in procuring information. The effi- 
ciency of such an officer would be materially increased if it should be 
clearly established that his official character was diplomatic rather 
than consular. 

In general, I would suggest that the annual commercial reports of 
the consular service be made in harmony with a regular plan or sys- 
tem. A consular officer should confine his annual report to his par- 
ticular district, and the commerce of the locality should be studied 
and reported upon Avith much minuteness and thoroughness. These 
reports should be transmitted through the legation, and it should be 
the dut}^ of the commercial attache to examine them all, draw the 
general conclusions, and make the principal annual report, dealing 
Avith the national trade as a whole. In this manner the various con- 
sular reports should fit together and cover the entire commerce of 
each nation, and the general conclusions could be drawn by one who 
has at his disposal the results of the work of the entire consular 
body. It is obviously inadvisable to publish two or more reports as 
to national trade containing conflicting figures and inconsistent 'con- 
clusions. Everything possible should be done to encourage consular 
officers to continue to make such admirable special reports on com- 
mercial subjects as are now being made. 

Lloyd C. Grisco^i. 



PEOMOTION OF TKADE INTERESTS. 219 

[luclosure with Mr. Griscom's dispatch of October 12, 1904.] 

[Translation.] 

No. 63.] Department of Foreign Affairs, 

ToTcio, October J,, 190/f. 
His Excellency Lloyd C. Griscom, 

Envoy Extraordinary and Minister Plenipotentiary, 

of the United States of America. 

Monsieur le Ministre : I have the honor to acknowledge the receipt of your 
excellency's note No. 90, dated the 12th ultimo, asking for information required 
by your Government, concerning the extent of cooperation between the diplo- 
matic and consular services of Japan in reporting upon commercial matters and 
advancement of trade interests and whether the Imperial Government appoint 
industrial or commercial attaches to any of its legations. 

In reply I beg to state that the service of making reports upon commercial 
matters, etc., properly belongs to the duties of the consular officers, but there are 
cases of the diplomatic officers being required to furnish reports on these mat- 
ters when it is found inconvenient for the consular officers to do so, owing to 
their residence being situated too far from the place. Likewise, at the places 
where consulates are still unestablished, the diplomatic officers, for convenience 
sake, are desired to make reports, etc., upon commercial as well as other mat- 
ters properly belonging to the consular service. 

Besides, it is customary with the Imperial Government to cause the diplo- 
matic and consular services to cooperate in furnishing information upon matters 
for the furtherance of commercial and industrial interests. But neither the 
extent of such cooperation is clearly defined nor has any commercial attache 
ever been appointed to anj^ of our legations. 

I avail myself of this occasion to renew to your excellency the assurance of 
my highest consideration. 

Baron Komura Jutaho, 

Minister for Foreign Affairs. 



Opinions of Gonsulm" Officers. 

NAGASAKI. 

In reply to circular, " Promotion of trade interests," I have to say 
that the diplomatic service can in my opinion be of great service to 
American trade in securing reports and information, advance sheets 
of customs returns, etc., from heads of departments much earlier than 
it is possible for consular officers to do so, considerably facilitating 
the answering of commercial and industrial inquiries from the 
Department. From the further fact of their being located at the 
capital, diplomatic officers would be enabled to learn and notify the 
Department of other important business wants, such as large con- 
tracts,''demands for machinery, merchandise, etc., at a much earlier 
date than can be expected of the consular officers who are scattered 
throughout the country, often at long distances from the capital. 

Seemingly to me the best and most thorough and expeditious man- 
ner in which our exporters can be additionally Benefited is for our 
Government to appoint commercial attaches to the embassies and 
principal legations, selecting wide-awake men, of thorough business 
ability and experience, speaking and writing the language of the 
country to which the}^ are sent, except those in Asia, to whom good 
salaries and their traveling and other expenses in securing informa- 
tion should be paid, they having no other duties than that of attend- 
ing to American trade interests. In their capacity as such commer- 
cial agents, they would soon be known to the authorities and trade of 
the country to which they were accredited, and in the great majority 



220 PEOMOTIOJS- OF TEADE INTEEESTS. 

of cases, would be able to secure the information desired from the 
departments Avithout calling to their aid the ambassador or minister. 

I shall be very glad to cooperate with the legation at any time to the 
end that American trade or other interests may be benefited. 

Chakles B. Harris, Consul: 

Nagasaki, September 13, 1904. 



TAMSUI. 



In repl}^ to cij'cular of August 4, I have to say that my views on the 
subject are in full accord with what seems to be the impression of the 
Department, viz, that our diplomatic officers with a definite plan of 
action could materially assist and advance American trade interests 
abroad in furnishing our manufacturers and exporters with reliable 
and valuable information on many subjects that can not be accurately 
obtained by consuls, or, if obtained, only with difficulty, and often in 
defective and misleading form. However, in the plan suggested in 
the circular inclosed I understand that when the diplomatic officer 
considered it necessary to annotate a report for correction, it would be 
forwarded to the Dej^artment and might be given to those interested 
without the knowledge of such correction reaching the consul who 
had prepared it. In the practical working of this plan, it appears to 
me there might be instances where the diplomatic officer would deem 
alterations necessary when, if the report were referred back to the 
consul he would be able to support his line of reasoning or statements 
of fact by an explanation which he had deemed it unnecessary to in- 
corporate in the report, or had possibly failed to do so by oversight 
when preparing it. It is ni}^ opinion that, on matters concerning 
commercial conditions or peculiarities of trade in his own district, the 
consul should be the better judge, and the questions present them- 
selves to me : 

First. Would not the practice of altering his reports, without his 
knowledge, or without his having an opportunity to explain or eluci- 
date the statements so altered reflect upon the spirit of initiative on 
the part of the consul, and at times convey to the Department and 
our trade interests information that might be misleading? And, 

Second. Would not better results be obtained if, when the Depart- 
ment is of the opinion that the consular service will have difficulty 
in making certain reports, by reason of the subjects being on matters 
of general interest or of a diplomatic nature, or for other reasons, 
that it instruct the embassy or legation to prepare such reports and 
to call upon the consuls for such information as may be required in 
their preparation? 

Fred D. Fisher, Consul, 

Tamsui, Formosa, September ^^, 190Jf. 



YOKOHAMA. 



Referring to circular of August 4, I have the honor to state that 
I am of opinion that such a step as therein suggested would benefit 
the Government and the people of the United States, provided a 



PROMOTION OF TRADE INTERESTS. 221 

suitable person were selected for the position of commercial attache 
to the legation ; a person, in other words, who understands trade con- 
ditions in this country and has a knowledge of the language and peo- 
ple, and would derote his whole time to the procuring of information 
that would benefit the American exporter. Our legation in Tokyo 
has easy access to the central Japanese Government offices, and a com- 
mercial attache would be able to obtain official information much 
earlier than this office could, as all information of this character has 
to be applied for through the legation. 

John McLean, 



YoKOHA-MA, October IJ^^ 1901^. 



Y ice-C onsul-General in Charge. 



I have the honor to say that the Depai'tment circular " Promotion 
of trade interests," was received at this office and answered by the 
vice-consul-general then in charge during my absence on leave in 
America, but it seems to me proper to express my views in a second 
reply on m}^ return. The opinions herein stated are based on my 
experience and observation of the conditions in Japan, and I assume 
that the Department does not expect consular officers to make categor- 
ical replies to the questions proposed, but desires a statement of their 
judgment as to the general feasibility of the plan as outlined. In 
my experience, I do not recall a single instance in which information 
on any. commercial or industrial subject could not be obtained w^ithout 
diplomatic assistance, if procurable at all. If consular officers should 
be directed to transmit their reports to the legation for revision and 
annotation, one of three results would ensue : First, the reports might 
be perfunctorily examined and invariably approved, in which case no 
good would be accomplished and the reports woulcl be delayed; sec- 
ond, the reports might be carefully and conscientiously examined, but 
since the subject of these reports is not usually matter of common 
knowledge but they must be compiled from statistical returns, public 
reports, interview's with business men, and other research, an intelli- 
gent revision would demand nothing less than an independent inves- 
tigation, covering the entire field of the consul's work in this connec- 
tion. In other words, the plan avouIcI entail a duplication of work, 
resulting in little or no benefit. 

I would respectfully suggest that if the consular offices are filled 
by capable men, such duplication is unnecessary and valueless. If 
not, would it not be better to supplant the incapables, instead of 
requesting the legations to perform the disagreeable task of revising 
their reports? The third possible result of the adoption of the plan 
would be a revision and annotations without a full investigation of all 
the data on which the report was based, a course wdiich would be cer- 
tain to give rise to discord and ill-feeling where perfect harmony and 
hearty cooperation are essential. 

It seems to me, therefore, that the change suggested would make 
the work of consular reports more cumbrous without adding percep- 
tibly to their efficiency, and that the ends sought can be better attained 
by other means. Personally, I should dislike very much to submit 
my reports, which I prepare with the greatest care, to a censor who 



222 PEOMOTION OF TEADE INTERESTS. 

might change or add to my statements, without giving me any oppor- 
tunity to know what was to be published over my signature until I 
should see the printed report. 

E. C. Bellows, Consid- General. 
Yokohama, Decemher 12^ 190 J^, 



KOREA. 

'Report from Minister Allen. 

. Legation or the United States or A^ierica, 
Seoul^ Korea^ Septemher 15, 190J}.. 

In reply to circular of July 29, relative to " Promotion of Trade 
Interests," I have the honor to call your attention to the fact that con- 
ditions here are such that the circular does not appty with much force 
to Korea. The only consular officer we have in this country is the 
secretary of legation, who is also consul-general. It has been my 
privilege and duty as secretary of legation, consul-general, and min- 
ister to secure the establishment of the large American interests now 
operating in Korea, which serve as centers for the introduction of 
American products, and without wdiich centers our trade with Korea 
would not have grown as it has done. Our representative here, under 
whatever title he may serve, would probably continue this course 
without any special instructions or provisions. 

As to the points you mention : 

1. It would be entirely practicable, after the establishment of con- 
sulates in Korea, for the minister to transmit them instructions 
from the Department of State, and to elaborate the replies received 
from the consulates. I think this would be eminently proper and 
advantageous, and it could be done without causing friction. 

2. The Korean Government, having practically no consular service, 
does not attempt any such cooperation. 

3. No especial assistance would be required in Korea for carrying 
out the programme described in question 1. 

Horace N. Allen. 



PERSIA. 

Report from the Legation. 

A31ERICAN Legation, 
Teheran.^ Persia^ September 10, lOOJf. 

The plan propounded in the circular of July 29 seems scarcely to 
apply to Persia, inasmuch as there is no consulate outside the lega- 
tion. If, however, general principles be admitted, especially with 
reference to Eastern countries, the following suggestions may possi- 
bly not be out of place. 

The legislative and administrative appliances of absolute govern- 
ments are very similar in method and operation. While in name the 
system is greatly centralized, it is widely diffused in actual working, 
so much so that the unit of a provincial organization has more power, 
in its own sphere, over the regulations of trade and the facilitating or 



PROMOTION OF TRADE INTERESTS. 223 

restricting of foreign or local enterprise, than the central Govern- 
ment. Governors of provinces, invested with plenary powers, are not 
only considered the best judges of what is necessary, but are left to 
carr}^ out their own views of what they consider more advisable. 

Legislative- acts, treaties, edicts, and decrees, while in their tenor 
and intention covering the whole State and country, are often modi- 
iied, if not ignored, by the authorities entrusted with their execution. 
This is largely due to lack of active inspection and control of the sub- 
ordinate machinery of government and the ignorance of the popula- 
tions governed. Under such circumstances, the ability of diplomatic 
agents to give efficient help to consular officers is largely curtailed. 
This is more particularly the case where the latter have a semijudi- 
cial character and the right, as in Persia, to attend the courts to 
assist and adjudicate when questions affecting life, property, or inter- 
ests of their citizens are concerned. 

A serious hindrance to the proper comprehension of commercial 
problems in Persia is the want of any literature or reliable statistics 
on the subject. A consular agent in Persia should himself be a cyclo- 
pedia of trading and legal knowledge, as there are so few aids to 
direct him in studjang the needs of the country and the methods to 
supply them. 

It may be well to know that in the Persian Government and admin- 
istration it is often possible to facilitate business and conciliate local 
officials b}^ appealing to their sense of duty, rather than by calling 
into action the forces of the central authority, which there are gener- 
ally some means of evading. 

A consular officer may do much, and a minister may assist him in 
different ways, to extend the commerce of America, but without the 
support and enterprise of the commercial community of the United 
States, his exertions and knowledge will be of little avail. American 
merchants seem as yet to be lacking in initiative for obtaining foreign 
trade where new ground is to be broken or old fields to be cultivated. 
The minister or the consul may indicate mines and quarries, but 
until there are volunteers to take up the pick and shovel they might 
as well appeal to the winds. The legation in Teheran replies with 
all necessary advice to every inquiry and proposal addressed to it by 
American manufacturers, agents, or merchants; but in hardly any 
instance has there been a response accompanied by the smallest 
sample, which is the first necessity to the introduction of new varie- 
ties of goods, or a change in patterns or make in the old. Catalogues, 
of which we receive an abundance, are hardly sufficient to indicate 
shapes, colors, and quality. 

Your first inquiry does not appear to contain any proposal of service 
that the head of a mission could not give or a consul frankly accept. 
It might, doubtless, in some respects, be modified by circumstances, 
wdiere both officers were new to their posts, or the conditions affecting 
trade were different in one place from those in another. Official 
regulation and supervision, if they led to improvement, need not, 
within proper limits, cause friction; and a minister, whose position 
gives him access to the views and susceptibilities of the highest 
authorities, would be able, if necessary, to suggest modifications in 
consular reports that might be judicious. 

The Persian Government has no commercial or industrial attaches. 

John Tyler, In Charge. 



224 PHOMOTIO^ OF TRADE INTERESTS. 

SIAM. 

Report from Minister King. 

American Legation. 

Banghoh^ Siam^ November 5, lOOIj.. 

Repljdng to diplomatic circular July 29, 1904, " Promotion of trade 
interests :" 

Question No. 1. This would be practicable at this legation, and we 
have found it quite advisable. The right to make annotations and 
suggestions on the part of the diplomatic representative would be 
necessary, unless, as in our case at present, the most cordial coopera- 
tion is observed in such cases. 

Up to the last A^ear, the diplomatic representative and chief con- 
sular officer at this post were combined in the minister resident and 
consul-general. Under those circumstances, the custom was naturalty 
established of embod^dng in consular reports all information on any 
subjects that could be obtained through both consular and diplo- 
matic efforts. Since the separation of the ministerial from the con- 
sular office, the consul-general has been made the secretary of legation, 
thus, as you see, continuing between the diplomatic and the consular 
duties to a large degree the same relations. The very natural result 
is, therefore, that scarcely any report goes from the legation that does 
not represent the result of the closest cooperation in the office and the 
combined effort of both departments in the field of inquiry. 

Question No. 2. Siam, 3^et a young country, has established no such 
advanced relations between its diplomatic and consular services, nor 
has she any commercial or industrial attaches. 

Question No. 3. See reply to question No. 1. 

ILiMiLTOX King. 



AUSTRALASIA. 
AUSTRALIA. 

Reports of Consular Officers. 

MELBOURNE. 

Replying to circular as to promotion of trade interests, I have the 
honor to say that, since the organization of the Comir<onwealth of 
^^.ustralia, the government thereof has recognized this consulate- 
general as the official head of the American consular service in 
Australia, making it the channel of all communications pertaining to 
America, and the relations established between xhe two offi.ces are of a 
most cordial nature. 

America, at present, furnishes one-fifth of the Austi-alian imports, 
AA^ith a wide field for further expansion if properly exploited b}^ the 
manufacturers and producers of the United States. Unqestionably, 
the addition to the staff of the consulate-general of a thoroughly com- 
petent commercial attache would be of the utmost benefit to our manu- 
facturers and exporters. Such an attache could receive instructions 



PROMOTION OF TRADE INTERESTS, 225 

from the State Department and transmit the same to the consukr 
offices in Anstralia on all matters pertainiiig- to trade, receiving their 
answers thereto, revising- the reports, and making them much more 
comprehensive and uniform than at present possible. 

Germany, which is making strenuous efforts to capture Australian 
trade, has both a commercial and an agricultural attache connected 
with the consulate-general here. These officers deal solely with com- 
mercial and agricultural matters; all trade inquiries received at the 
various consulates in Australia, and reports requested by the govern- 
ment are referred to and dealt with by them. Canada has two com- 
mercial representatives in Australia, whose dutv it is to extend the 
trade with the Dominion. They are authorized to take such steps as 
they deem advisable, and expend such sums of money as will properly 
keep the manufacturing interests of Canada before the merchants of 
Australia. A commercial representative for America would neces- 
sarih^ have to be a versatile person, having a general knowledge of 
the methods of manufacture, and the channels and manner of trade. 

John P. Bray, Consul- General. 

Melbourne, Octoher 5, 190. !f. 



xeavcastlp:. 

Replying to circular, " Promotion of trade interests," I have the 
honor to say that I can not see how the influence of our diplomatic 
representative in London would be of anj^ use to us here, for the 
reason that, with the exception of a sympathetic bond to Great 
Britain, this commouAvealth is practically an independent nation. 
Consular officers here are regarded by the authorities with all the 
consideration that members of the diplomatic service receive from 
the officials of strictly independent states, and no courtesy or aid is 
refused that it is in their power to grant. 

In my judgment, our service here is doing all that it can do, as it 
now stands; but, if still better results are desired, they could be 
brought about only by the appointment of a commercial agent for 
Australasia, who had been well trained for his duties, and would 
devote his time and efforts, with the advice of the various consular 
officers, to ascertaining the wants of this people and the products to 
be obtained here that are desired by Americans. By spending a 
few weeks or even days in each consular district several times a year, 
such an official would not only keep in touch with the commercial 
affairs of the countr}^, but through liberal use of the cables would be 
able to promptly inform our business men of profitable openings. 

As is well known, the trade of Australasia is very large, and a por- 
tion of it is now controlled by Americans ; but if the idea I have sug- 
gested were carried out — and it has proved successful in the case of 
commercial agents of this state in the Far East, South Africa, and 
London — a much larger part might be directed to our shores. In my 
labors here, I have often felt the want of such an official, and while I 
have been able to direct the attention of the business men here to 
many of our products, resulting in business, I am certain that much 
more might have been done by such an officer as I mention. 

H. Doc. 245, 58-3 15 



226 PROMOTION OF TRADE INTERESTS. 

Since I prepared the above, the following has appeared in the local 
newspaper, showing the activity here of the German Government : 

" Herr W. de Hass. commercial attache to the German consulate 
in S^^dney, has left Brisbane for the north. He is to spend two 
months in Queensland, during which period he will tour the northern 
and central districts on behalf of the German Government, to make 
inquiries concerning a supply of raw produce for export. Among 
other commodities which will receive the attention of the attache is 
wolfram, which the German firm of Krupp are purchasing in large 
quantities for use in the maimfacture of implements of war. Herr 
de Hass proposes to secure data as to the possible supply.'' 

F. W. GoDiNG, Consul. 

Xfavcastle, September i^, 190 Jf. 



SYDNEY. 

Your circular letter of August 4 has been received and carefully 
considered. 

It will be noted by you that the American consuls in Australia are 
located in states Avhich, until quite recently, were independent gov- 
ernments in all but the name, and that the consolidation into the 
" Commonwealth of Australia ■' still leaves the separate states with 
nearly all the government functions they were accustomed to exercise 
before federation. Diplomatic questions arising here come first 
before the consul, which fact, owing to the great distance from Lon- 
don and the necessity of some immediate settlement, renders a consul's 
duties at the seat of a state government more or less diplomatic. This 
gives him access readily to all Government officials and to all possible 
or proper sources of information, and renders the services of the 
ambassador at London in the matter of obtaining statistics or com- 
mercial information unnecessary, and together with the great dis- 
tance of London from Sydne3^ impracticable. 

There are two methods, either of which, I would suggest, might 
greatly aid the consul in serving the interests of trade within the 
sphere of this considate : 

1. An allowance might be- made for research and investigation as 
to matter for report — the supply, sources of supply, prices, and 
demand for certain lines of goods. A local man, familiar with the 
trade in the city, might be employed and paid for only what he does, 
not being a fixed attache to the consulate. 

2. Or, allow the vice-consul a fixed salary and make his duties that 
of a commercial agent, wdth such allowance as business men in 
America allow their '• drummers " to facilitate their business. Manu- 
facturers would be able, through him, to place their goods in the 
hands of dealers who would push them in the market and exhibit 
them in the fairs held in the larger cities. The vice-consul, as- agent, 
would have time to see that dealers accepting the agency of Ameri- 
can goods were acting in good faith, and were not holding the sam- 
ples more to prevent their merits being l^nown than to effect sales. 

The prejudice in favor of English goods is strong, and so many 



PROMOTION OF TRADE INTERESTS. 227 

interests combine to hold the Australian market, that competin-g 
goods must exhibit superior qualities to secure the attention of the 
people, and ought to be persistently advertised, one way or another. 

The best thing, of course, would be for the manufacturers to have 
branch houses located in Sydney, as is the case with some American 
manufacturers of typewriters, sewing machines, cash registers, and 
farming implements, Avith salesmen, local and traveling. But there 
are hundreds of articles made in the United States that, in my opin- 
ion, might find a market were their merits known, which the manu- 
facturers can not afford to advertise by special agents. 

The varied and numerous duties of the consul at this port render 
it impossible for him to be much more than a medium through whom 
communication between seller and dealer can be established or adver- 
tisements be circulated. 

To illustrate: A manufacturer Avrites us for a list of dealers han- 
dling a certain line of goods. We send him a list. He selects one to 
whom he sends samples. It has happened here that such samples are 
thrown into a corner and no effort at all made to introduce the goods, 
although a promise may have been given that effort would be made to 
effect sales. Or a general agent comes from the United States and 
agrees with a firm who promise to handle the goods. All arrange- 
ments are made, samples are forAvarded, and the agent goes away to 
Japan or China rejoicing in the idea that he has accomplished a great 
work in placing his goods in the Australian market. It has often 
proved, however, that he has merely tied up the manufacturer from 
selling his goods in this market for a year or more, as no sales are 
made and there is no attempt made to sell. The agency seems to have 
been accepted simply to preA^ent competition Avith manufacturers in 
England or some other country. 

The vice-consul, as general agent, could follow up all agencies 
accepted and see that the acceptance was carried out in good faith. 

I have already, on two occasions, written the Department what 
other nations are attempting through their consulates in Sydney, 
especially Germany. The German, French, and Japanese consuls are 
'"consuls-general," and retain under pay a large staff of officials. 
Germany spends annually as salaries of consular officials, $13,696, and 
besides maintains a commercial agent — salary $5,000 — ^making a total 
expenditure at Sydney of $18,696, not counting incidental expenses of 
office and agent. 

In a country governed vice-regally, like this, the title " consul- 
general " gives a dignity and secures a consideration greater than 
attach to the narrower title '' consul." 

Sydney is, unquestionably, so far the greatest commercial empo- 
rium and distributing center for Australia and the Pacific Islands in 
Australasia. It is OA^er 500 miles from its only rival, Melbourne, 
where you have, properly, a consul-general, as Melbourne is a very 
important city and deserves the distinction given it; but Sydney 
deserves it none the less. The American consul here should rank as 
high, at least, as consuls of the nations mentioned above. 

Orlando H. Baker, Consul. 

Sydney, N. S. W., Octoher 21, 1904. 



228 PROMOTION OF TRADE INTERESTS. 

KEW ZEALAND. 

Opinion of the Consul-general. 

Eeplying to the Department's circular, '^ Promotion of trade inter- 
ests," I have the honor to answer interrogatories 1 and 2 as follows : 

ISTo. 1. Speaking for this office, it is practicable for me, as consul- 
general, to transmit to the consular officers subordinate to me instruc- 
tions from the Department, from time to time, for inquiries, and to 
note, in my dispatch of transmission to the Department, any sug- 
gestions that may occur to me from my sources of information, which 
would facilitate the inquiry or help to make it more comprehensive 
and more exhaustive. But if I were obliged to transmit my reports 
to an embassy or legation for revision, either in the way of annota- 
tion or elimination, which their lack of familiarity with commercial 
matters would not warrant, delay and possibly friction would neces- 
sarily arise, and it would be impossible to preserve the spirit of initi- 
ative, which is, as you say, one of the most valuable features of the 
consular service. 

No. 2. There being no embassy or legation in New Zealand, I have 
no difficulty, as consul-general, in obtaining official information as 
promptly as if I were ambassador or minister. All reports forwarded 
by me to the Department of State have been authentic, because 
I have been enabled to reach the center of official information, i. e., 
the ministerial department of this Government specially charged with 
the matter. It is, however, possible, and I think probable, that 
occasion might arise in consular districts in countries where there 
are embassies or legations when accurate information could be more 
easily and quickly gotten through the aid of the diplomatic corps; 
yet, as before remarked, I do not think an ambassador or minister 
would be as likely to personally possess as accurate commercial 
information as would a consul who mix,es with the commercial world. 
Therefore, no report that was revised by either ambassador or envoy 
would, or could, be so effective and accurate as when received from 
the consul. 

Frank Dillingham, G onsul- General. 

Auckland, New Zealand, Octoher 18, 190 J^. 



SAMOA. 

Opinions of the Consnl-general. 

In reply to circular of August 4, I have the honor to state that, 
owing to the isolated location of Samoa, I depend for all commercial 
intelligence upon the government officials and the merchants of this 
island; but for the more important countries, where embassies or 
legations are situated, a commercial bureau, as an auxiliary, would 
in my opinion be productive of the most practical and efficient results 
for the promotion of trade interests. Through this bureau, the 
Department of State would be promptly advised of the resources of 
the country, its industrial development, and its markets for the 
products of our countrj^, and this information would suggest instruc- 



PROMOTIOlSr OF TRADE INTERESTS. 229 

tions to consular officers for detailed reports on important subjects. 
The consuls, in turn, with the cooperation of the commercial bureau, 
would be enabled to furnish more comprehensive and more reliable 
reports than are possible at present. There is no doubt in my mind 
that the adoption of this plan would provide a most effective instru- 
ment for the expansion of our trade. 

Geo. Heimrod, Consul- General. 
Apia, September 15^ 190J^. 



AFRICA. 
EGYPT. 

Report from Agency and Consulate- general. 

American Agency and Consulate- General, 

Cairo^ August 20^ lOOIf. 
In reply to the Department's instructions of July 29, I have the 
honor to inform you that commercial cooperation between the United 
States diplomatic and consular services is secured in Egypt by the 
unique nature of this office, which combines the duties of diplomatic 
agency and consulate:general. The position enables us, therefore, to 
obtain official information at first hands, and to apply it to advantage 
m our consular capacity. For the present, no commercial or indus- 
trial attaches, in addition to our present consular staff, are needed, 
but Avith the development of the Sudan new work and questions of 
commercial importance will probably be continually brought to this 
agency. 

Frederick G. Morgan, 
Vice C onsul- General in Charge. 



LIBERIA. 

Report from' Legation. 

American Legation, 
Monrovia, Liberia^ September P, 190 Ij.. 

In reply to circular, " Promotion of trade interests," I have the 
honor to say that the fact that this legation has a consular depart- 
ment, together with the further fact that there are no consular officers 
within its jurisdiction, eliminates some of the considerations raised. 
However, the practical operation of the consular department in con- 
nection with the legation might make a few observations appropriate. 

1. The consular department here has all the advantages possible to 
be given it, by sharing the diplomatic status of the legation, for the 
officers are the same. In the past the legation has placed at the dis- 
position of those engaged, in the consular work all local publications 
of commercial data, and in other Avays has rendered valuable services. 
Through the newly established bureau of statistics of Liberia the 
legation will probably be able to do more, but the consular depart- 
ment will still labor under difficulties peculiar to the field. The com- 
mercial data of this Republic and of regions along the coast, so neces- 



230 PEOMOTION OF TRADE INTERESTS. 

sary to an aAvakening of American interest and a proper presentation 
of American trade opportunities in West Africa, are outside of the 
information usually published, and must be gathered from personal 
investigations and from isolated publications from widely divergent 
sources. To bring the consular department up to the point of 
efficiency Avhich the trade and importance of West Africa demand 
would necessitate a considerable increase in the working force of this 
mission. 

During the present incimibency, we have put forth special efforts 
to collect and furnish the needed information for the expansion of 
American trade in West Africa, outside of the regular work of this 
post, and the increased labor which has followed requires a larger staff 
for its proper performance. The correspondence has greatly increased, 
American goods are reported entering new fields, and a steamship 
company has been incorporated in New York City to communicate 
directly betAveen the manufacturers of the United States and the con- 
sumers of West Africa. The further collection of trade and indus- 
trial information in this field could be carried on profitabty and to the 
advantage of iVmerican export trade only by strengthening the force 
of the mission. 

2. There are no commercial or industrial attaches here, and my 
opinion is that whatever service they might render could better be pro- 
vided for in some other way. The consular department is a part of 
the legation and had the full advantage of its functions; for this 
reason the service performed in other countries by commercial attaches 
could just as well be performed here by the diplomatic officers, with 
the assistance of clerks. 

3. To give the consular department at this post the efficiency men- 
tioned under paragraph No. 1, the services of at least two good clerks 
are needed. As secretary of the legation, taking in shorthand the 
dispatches and letters of the minister, and transcribing the same on 
the record books of the mission, I am prepared to say that the work 
is too much for an}^ one man in this climate. In the necessary per- 
sonal investigations, in the routine work of the legation, in the com- 
mercial demands upon the mission, in the careful collection and 
preparation of industrial data from varied sources, the consular 
department here will long suffer from climatic and other difficulties 
peculiar to West Africa. AVhatever is to- be done for the purpose of 
arousing American interest to its opportunity in West Africa must 
be done largely through the consular department of the legation at 
Monrovia ; ancl to strengthen its force is, in my opinion, to contribute 
most effectively to that end. 

George W, Ellis, Jr., Charge. 



LOURENCJO MARQUEZ. 

Opinions of the Consul, 

I have the honor to reply to the Department's circular instruction 
of August 4, transmitting cop}^ of a circular to the diplomatic officers, 
in regard to a plan for the cooperation of the officers of the two serv- 
ices in the promotion of American trade. 



PROMOTION OF TKADE INTERESTS. 231 

I am asked for an expression of my views upon this subject. 

In my humble opinion, the first oi the considerations advanced in 
the above-mentioned diplomatic circular vzill probably apply to the 
Lisbon legation as well as to any other legation or embassy. But, in 
regard to the second consideration, I am of the opinion that, under 
existing conditions, the Lisbon legation can be of very little assistance 
in the securing of commercial information relating to my consular 
district — the province of Mozambique. 

As you are probably aware, the Lisbon Government is quite out of 
touch with the commercial life of this province; and there is very 
little intercourse betw^een the Lisbon legation and this consulate. As 
far as I know, all that the Lisbon legation has ever done for, or on 
behalf of, this consulate, has been to request, from time to time, the 
free entry of my official supplies and, on one occasion, to ask the 
extradition of a prisoner from Beira. 

Detailed statistical information relative to the trade of this country 
is rarely published, and if it is published, it is published here first 
instead of at Lisbon. I have seen in the local custom-house a great 
mass of statistical information, admirably gotten up but faultily ar- 
ranged, relating to the commerce of the year 1903. These statistics 
have never been published, for the reason that the local government 
hesitated to incur the expense of publication, fearing disapproval 
from Lisbon. 

If I can spare the time, and if I can arrange so as not to inconven- 
ience the customs officials, I can always inspect the archives of the 
customs. The same courtes}^ is also generally shown me in other de- 
partments. If I had some clerical assistance, I could keep the De- 
partment supplied with various items of statistical information by 
almost every mail. 

With conditions such as these prevailing, I fail to see how the Lis- 
bon legation, even if the minister does his best, can be of any great 
assistance in securing commercial information relative to my consular 
district. 

The most practical way to secure more frequent, more elaborate, 
and more valuable reports from my district will be to give this con- 
sulate an allowance for clerk hire, and to allow me to make annual 
visits of inspection to the leading ports and commercial centers of 
my district. 

W. Stanley Hollis, Consul. 

LouRENCO Marquez, SepteiTober 16^ lOOJf.. 



MADAGASCAR. 

O'pinions of the Consul, 

In compliance with circular of August 4, I have the honor to state 
that the matter has received my careful attention and study, extend- 
ing over the whole period of the existence of the diplomatic and con- 
sular relations with the American Government that have never ceased 
since 1866, when Madagascar possessed her autonomy and concluded 
a treaty of peace, commerce, and friendship with the United States. 
This condition of things, however, was changed in 1896 by the subju- 
gation of the island b}^ France. 



232 PROMOTION OF TKADE INTERESTS. 

The United States has never had a diplomatic representative, except 
temporarily for the negotiation of treaties, in Madagascar, the devel- 
opment of our commerce here having always been reported and 
encouraged, to their utmost endeavors, by the consular officers. 

In the constantly growing work of equipping our American manu- 
facturers and exporters for effective competition in the world's com- 
merce, it would be an exaggeration to attempt to represent that Mada- 
gascar — at least for some years to come^is likely to advance by leaps 
and bounds, for trade is considerably depressed just now; but there 
is absolutely no reason why our trade could not be increased.. At 
the same time, there are conditions which must not be ov^erlooked in 
a careful examination of the situation. French restrictions, legiti- 
mate in principle, but frequently abused by inferior officials, tend 
almost continually to block the way for both us and all foreigners of 
non-French origin. Then, again, the duties on non-French goods, in 
themselves burdensome, if not, as in the case of American cottons, 
very nearly prohibitive, are levied with so many formalities that it 
all ends in completely discouraging foreign importers, so that the 
English and German houses established at Tamatave for forty years 
now import almost wholly French goods. 

Notwithstanding this, there are numberless products of our country 
constantly being inquired after and sought for both by natives and 
foreigners of all nations, but their orders are immediately met by the 
great obstacle of lack of direct communication between Madagascar 
and America, even supposing they were indifferent to the heavy 
customs dues. The result of this is that people have to accustom 
themselves to goods solely of French origin and French manufacture^ 
although in a great many cases they would prefer ours. 

As to the second consideration, alluding to the possible limitation 
upon the consular service in Madagascar, owing to lack of diplomatic 
status in obtaining official information at first hands, it is my duty 
and pleasure to state that despite the absence of a diplomatic agent, 
this consulate has been treated during my tenure of office with the 
utmost courtesy by the French officials of the colony, but notwith- 
standing their best intentions, it is not infrequently a source of great 
trouble to procure, forward, and make known to our exporters the 
peculiarities of the trade of every province of the island. To obtain 
a group of comprehensive reports upon such varied and numerous 
subjects is impossible except to a man. of high attainments and long 
experience in the country, remunerated in such a manner as to enable 
him to devote his whole time and talents to the work ; for the duties 
of this consulate absorb the consul's time, and it can hardly be 
expected that one consul could keep in touch wdth the changing con- 
ditions in so large a countrj^ 

It is not always remembered that Madagascar has more than 2,000 
miles of coast line, and at least 25 important ports which it is neces- 
sary for the custom-houses to control. Sometimes a consignment of 
American petroleum will be landed on the^ opposite side of the island, 
and this consulate only hears of it by accident or courtesy months 
after. The capital of Madagascar is Tananarivo, situated in the cen- 
ter of the island, which, until very recently, required as long to reach 
from this consulate, at Tamatave, as would suffice to cross from New 
York to Liverpool. Its population consists of 60,363 natives, 1,345 



PROMOTION OF TRADE INTERESTS. 233 

French, and 232 other foreigners. Tamatave, the seat of this consu- 
late, numbers 2,465 French, 743 other foreigners, and 8,047 natives. 
Taking only 8 other towns situated hundreds of miles apart, the 
totals give 2,758 French, 966 other foreigners, and 23,980 natives. 
These figures do not include officers and soldiers of the army of occu- 
pation nor Asiatics and Africans. The whole population of Mada- 
gascar does not exceed 3,000,000 natives; but Madagascar has her 
dependencies, namely, St. Mary Island, the Comoro Islands, Nossi- 
Be, and Bourbon, now called Eeunion, a sister colony of 150,000 
to 200,000 inhabitants, where America has no consular representative 
at all, and where only last month a vessel direct from New York 
landed 10,000 cases of petroleum. The population, then, although 
sparse, covers a very large district, and I could not give the opinion 
that, at least for the present, there is the probability of, in any great 
measure, increasing our trade to profitable proportions. 

I am able, however, to corroborate the Department's expression, 
at least in my own case, that very many difficulties have been over- 
come in obtaining information by the assistance and by the good 
offices of the bureaus of the colonial government, with which this 
consulate has always maintained the best relations, although I think 
the Department will see that a single consul for so large an island 
and its dependencies can scarcely furnish the information and further 
our commercial development in the spirit and to the extent contem- 
plated by the Dej^artment. England has three consular officers 
here — two full consuls and a vice-consul — to each of whom is assigned 
a section of the country, and one consul at Reunion. 

Most decidedly, admitting the view that the extension of commerce 
has become one of the chief aids of world diplomacy, I would merely 
submit mj opinion that were a capable man appointed to do nothing 
else but collect industrial and trade information he could do valuable 
and useful work, although, as I said above, I would not venture to 
jDredict any great development immediateh^ 

To answer, then, in conclusion the Department's questions on the 
numbered points, I would sa}^ in answer to query No. 1 : That as there 
are no diplomatic officers in Madagascar, if we had such consular 
subordinates the idea therein suggested would be most certainly 
practicable. 

The means which the French Government uses to increase its busi- 
ness interests in foreign countries are too well known to the Depart- 
ment to call for explanation from this consulate. I can simply men- 
tion that in this their newly acquired colony they have a numerous 
staff of able and efficient men, whose only duty and sole occupation 
is to study the economic resources of the island and its dependencies. 

AVhen I am asked whether, in my judgment, commercial attaches 
would be useful for America, I leave to the Department to think of 
the extent of this consular district at present, and I believe the 
response will be affirmative. 

Question No. 3. If Madagascar is to furnish more detailed infor- 
mation in the future than in the past for the expansion of American 
commerce, in what we call the Mascarene Islands the expression 
of my views, which the Department calls for, points to the necessity 
of the extension of the consular corps. 

William H. Hunt, Consul. 

Tamatave, October 5, 190J^. 



234 PEOMOTION OF TRADE INTERESTS. 

MADEIRA ISLANDS. 

Opinio7is of the Consul. 

I think the Department's idea of connecting our legations with our 
consulates for commercial work is a most feasible one. The more 
closely the two services are brought together the better. Here in 
Madeira, I am on good terms with all the officials, and needed infor- 
mation only requires the asking. They are most courteous. But I 
know little of transactions at the capital. As an instance, a German 
syndicate has been granted a concession by the Portuguese Govern- 
ment to erect a sanatorium in this island for the cure of consumptives. 
Forty patients are to be looked after free of cost. All building mate- 
rials, furniture, and appurtenances are to be brought in free of cus- 
toms, and the concessionnaries are to be allowed the privilege of 
building hotels. The material for building and furnishing and the 
appurtenances thereunto belonging are to be admitted free of dut}^ 
No one not connected with the enterprise knows how far the conces- 
sion goes or really what is conceded. It is supposed that a casino for 
gambling is a main feature of the concession. Inquiries have been 
made in the English Parliament concerning this concession, but as yet 
no answer has been given. Many of the business people of Funchal 
are opposed to the concession, and complaint is made that trade and 
business have been worked up under a heavy duty system, and that it 
is not fair now to have to compete against a dutj^-free undertaking. 
The public officials here are silent, and one can not obtain definite 
particulars. 

A consul should have all the information from the capital that 
concerns his district. In the foregoing instance, we have no direct 
information, such as could be obtained by proper contact with sources 
at the capital. 

T. C. Jones, Consul. 

Funchal, Angnst29, 190 J^. 



MOROCCO. 

Opinions of the Consul- General. 

I beg to acknowledge the receipt of the Department's circular, 
" Promotion of trade interests." As the Department is aware, the 
representative of our Government at Morocco, while holding the title 
of a consular officer, is accredited directly to the Sultan of Morocco, 
and through the courtesy of the Government of this country and of 
his colleagues, is accorded the position of a diplomatic officer, though 
of low grade, so that, in reality, he occupies a double position. With 
regard to facilities for the collection of commercial intelligence in 
Morocco, I might say that they do not exist. No statistics of any kind 
are gathered, commercial or otherwise, by the Government, Avho are 
therefore never able to furnish information. The onlj^ commercial 
statistics collected are those furnished by me annually to the Depart- 
ment, which are collected by the British representative and myself 
through a special agent emploj^ed by ourselves. Wliile a considerable 



PEOMOTTON OF TKADE INTERESTS. 235 

amount of American products, such as petroleum, flour, and lard, are 
consumed in Morocco, they are imported altogether from European 
ports, the absence of direct communication between the countries 
being a great handicap to development of trade. The trade of 
Morocco is entirely in the hands of British, German, and French 
houses at present. 

S. R. GuMMERE, Consul- General. 
Tangier, September 8, 1904. 



ST. HELEK^A. 

Opinions of the Consul. 

With reference to circular, '* Promotion of trade interests,-' I would 
state that the foreign trade of this small and remote island is so 
extremely limited as to leave absolutely nothing for the exercise of 
diplomatic aid or influence in furtherance of American commercial 
interests, information under this head being at all times readily and 
cordially placed at my disposal by the local officials, under sanction of 
the governor, and transmitted to the. Department in the annual and 
other reports from this consulate. 

The writer is of opinion, however, that a moderate amount of trade 
might be done between St. Helena and the United States, if one or 
more of our American merchants would initiate the business by send- 
ing a small cargo or two ever}^ year of such goods as provisions, 
keresene, lumber, hardware, tobacco, grain, oilcake, drugs, etc., which 
now appear in official returns as imported from London, Cape Town, 
etc., but really had their origin in America. 

Rob. p. Pooley, Consul. 

St. Helena, Octoher 7, 1904. 



SIERRA LEONE. 

O'praions of the Consul. 

I have the honor to submit the following remarks in regard to 
British West Africa, in response to the circular entitled " Promotion 
of trade interests." 

British West Africa is a commercial empire in itself, with an area 
of more than 556,000 square miles and an extensive seacoast, contain- 
ing a diversity of peoples, of natural products, of trade opportunities 
and advantages, the extent of which can hardly be realized. The 
British possessions are our greatest customers in the world of com- 
merce. Under our present service in this country, it is impossible 
for our consular officer to come into practical touch with the interests 
of so vast a country, embracing the separate colonies of Gambia, 
Sierra Leone, Gold Coast, Lagos, and northern and southern Nigeria, 
without the aid and cooperation of additional agencies. Much impor- 
tant commercial information, which would no doubt greatly benefit 
American trade, is lost for want of an adequate consular force. 

I would suggest, therefore, that the purposes and aims of the De- 



236 PROMOTION OF TRADE INTERESTS. 

partment, as outlined' in the circular referred to, would be better 
served by erecting the colonies of British West Africa into a 
consulate-general, with consular agencies at the more important sea- 
ports. This arrangement would greatly increase the efficiency of 
the service here b}^ enabling the central office, through its agencies, to 
come into closer relations with both local and general conditions 
throughout West Africa. 

Our diplomatic office in London, over 3,000 miles away, is too dis- 
tant to ISe utilized as a commercial medium; but the embass}^ could 
help a consul-general by making desirable trade information access- 
ible to him. 

With an active, intelligent staff of agents, this officer could system- 
atize and centralize methods for collecting commercial intelligence 
from this coast commensurate with the needs of our commerce. 

The primary need of the West African service would be sufficient 
salaries to support the officials to do the work. From six years' 
experience and observation on this coast, I should say that $10,000 per 
annum in salaries for the consular service in British West Africa 
could not be expended with better prospective results for American 
commerce anywhere. 

John T. Williams, Consul. 

Sierra Leone, October 19^ 190 Jf, 



SOUTH AFRICA. 

Report from Consulate- general. 

In repl}^ to circular of August 4, I will state that, as there are no 
diplomatic officers accredited to South Africa, this portion of the 
circular would not apply to this consular district. The following 
British colonies have commercial agents here: New South Wales, 
New Zealand, and Tasmania. These agents are appointed by their 
respective governments; their duties consist in collecting commercial 
intelligence and data concerning imports and exports, prices, etc., 
and reporting the same directly to the government, and in answering 
letters of inquiry from exporters. AYliile these commercial agents do 
not have the same status as the consular officers, they receive the same 
courtesy, and have the same facilities for acquiring information. I 
am informed that one of these agents receives a salary of £600 
($2,919.90). 

Canada is represented by a commissioner, Avhose duties are the same 
as those of the agents. No foreign government is represented here as 
outlined in your circular, the trade interests being looked after by the 
consular officers. 

This consulate is on friendl}^ terms with the center of official infor- 
mation, i. e., the ministerial departments of government; hence, it 
experiences no difficulty in getting information at first hands.. We 
have always found the heads of departments both courteous and will- 
ing to give all the assistance and information they could. 

Clifford M. Knight, 
Yice and Befuty Consul- General. 

Cape Toavn, ^eytemUr 21^, 190 1^. 



PROMOTION OF TRADE INTERESTS. . 237 

ZANZIBAR. 

Opinion of the Consul. 

In reply to circular, " Promotion of trade interests," I have to say 
that Zanzibar and the East African coast from Delagoa Bay to Cape 
Guardafui is an undeveloped country. Owino-, however, to the 
Uganda and Usumbara railroads, and the immediate building of the 
one from Dar Salaam, German East Africa, to Lake Tanganyika, and 
the one from the Cape to Cairo, the region is being rapidly opened up, 
and white immigration is setting in. American merchants are alive to 
the possibilities that exist for extending our trade in this country. 
Every mail brings requests for the names of merchants and dealers in 
their wares and for information as to how to place goods before them. 

I am in thorough accord with the proposition discussed in the cir- 
cular — i. e., the cooperation of the diplomatic and consular services 
in promoting American trade interests, for in countries where we have 
diplomatic representatives they are in a position to gather informa- 
tion of importance that is unobtainable by the consul. Kegarding the 
questions asked in the circular to diplomatic officers, it would be 
entirely practicable for me to transmit to consular officers who might 
be in my district instructions from the Department of State, from 
time to time, for particular inquiries, noting in my dispatch of trans- 
mission any suggestions that might occur to me, from my sources of 
information at the capital city, which would facilitate the inquiry 
and help to make it more comprehensive and exhaustive. And if such 
consular officers should direct their answers to said instructions 
through me, I would undertake to revise their reports, with annota- 
tions or eliminations if necessary. No such cooperation as outlined 
above exists in Zanzibar, from the fact that the adjoining main shore 
is British or German territory, with but small coast towns, the larger 
part of the country being still undeveloped. 

Mombasa, British East Africa, is the most important place as a 
shipping port, and is growing, as it is the starting point of the 
Uganda Kailway, running to Lake Victoria Nyanza. The Germans 
have a vice-consul there under the jurisdiction of the Zanzibar con- 
sulate. Our need for a consular agent at Mombasa is daily increas- 
ing. Not only are American citizens constantly arriving and passing 
through there on their way up the Uganda Eailroad, but its trade 
Avith America is increasing.' Mombasa, not Zanzibar, is now the 
receiving and distributing port for British East Africa. The estab- 
lishment of an agency or vice-consulate at Mombasa would further 
the * object sought — the coordination and improvement of existing 
facilities for the collecting of commercial intelligence — aside from the 
advantage it would be to our trade and citizens. Zanzibar is 125 miles 
from Mombasa, and it is often ten days before there is a ship between 
the two ports. 

Mason Mitchell, Consul. 

Zanzibar, Septemher 16^ 190 J^. 



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